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Cloud Telephony and IVRS Based Daily Monitoring System (DMS) for Mid-day Meal Scheme

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Cover photo courtesy: Mid Day Meal Authority, Uttar Pradesh

This initiative of Mid Day Meal Authority, UP was documented by UNICEF Office for Uttar Pradesh in December, 2010

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Acknowledgement

Lack of resources, control and extensive turnaround times has always plagued the

MIS of large scale government operations. Though e-governance has progressed a

lot, the scenario was largely the same for Mid Day Meal Scheme (MDMS) also.

Information for the number of children availing meals was available district-wise

but when decision making was required on different aspects of the scheme it was

not possible to segregate the information below district level and the time-lag was

a major hurdle, since the periodicity of this information was quarterly or at best

monthly.

The Daily Monitoring System (DMS) is a solution to these impediments. Be it

accurate sampling, real time information snapshots or even analysis generation,

the DMS provides all these functions within a framework that enables

communication between the lowest points of data collection and the highest levels

of management in the government.

Interactive Voice Response System (IVRS) for monitoring Mid Day Meal Scheme

(MDMS) in Uttar Pradesh, India is a unique process innovation with no parallel

anywhere in the world. The system tracks the number of schools that serve / did

not serve a mid day meal on any particular day as well as children who had lunch

in the school on the prescribed working days.

This document is an attempt to try and capture the process that was adopted to

start this initiative. It is hoped that this document will help those who wish to

replicate it as well as those who wish to learn more about it.

Finally, we wish to thank those people who have been involved in making this a

success, especially Shri. Amod Kumar, IAS, former Director, MDMA, UP who

initiated this monitoring system in the state.

We would like to thank all the officers and employees of MDMA who have

contributed in making this initiative a success. We would also like to place on

record thanks to Dr. Rubina Maiti, Education Officer, UNICEF, UP who

supported in getting this process documentation done.

December, 2010

Acknowledgement

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Contents Page No

Acknowledgement 1

I. Executive Summary 3

II. Background 4

III. What is IVRS? 10

IV. The Process of IVRS 12

V. The Situation Before and After 14

VI. Impact of IVRS 16

VII. Conclusion and Recommendations 18

VIII. The Way Ahead for the State 19

IX. Annexure 20

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I. Executive Summary

II.

The Interactive Voice Response System (IVRS) is a technology which effectively

uses the interface between computer software technology and mobile

technology. The use of this system in the monitoring of the Mid Day Meal

Scheme has proved to be a „tool of decision making in the hands of the decision-

maker‟. This system has been successfully operationalized in Uttar

Pradesh. Launched in June 2010, the IVRS has come as the answer to the need for

a convenient and cost-effective method of monitoring the Mid-Day Meal Scheme

on daily basis in Uttar Pradesh, which is part of the world‟s largest lunch

programme.

The IVRS entails placing system generated, automated calls to the

headmasters/teachers of government, government-aided, and local bodies-schools

where mid-day meals are cooked. Each headmaster or teacher keys in the figures

for their respective schools, i.e., of how many children have had lunch that

day. The system then automatically generates a data base for the entire state.

Initiating such a system has had its set of challenges both in terms of technology

and management. The major challenge in getting real time data from almost 1.52

lakh schools was to get it through the „pull‟ method, i.e., extracting the required

information from the respondents. Further, this had to be done within the given

timeframe after the meals are served and before the school is closed for the day. A

system like this does not have to depend on the respondents to initiate the

provision of data from their end. Again, ensuring that the teachers do not spend a

single penny to deliver the data was another major challenge. Above all, the

acceptance and user-friendliness was crucial in the search for a system that fit in

terms of requirement, design and viable technology. It also called for caution as it

was one-of-a kind, and also the first of its kind with no previous models to bank

on. Only then could the vision, as conceived by the Mid Day Meal Authority, way

back in 2007, be realized.

Overall, the end result is a success story that is worthy of emulation by various

other sectors. Most importantly, it has brought in a system of accountability and

transparency, primarily because data is available almost immediately. Upon

stabilization of this system, this data could serve various other purposes, or new

components could be added to the existing process. Nevertheless, its impact has

been that compliance with the scheme has improved to a great extent, which is the

ultimate objective of the monitoring system. This report is a process

documentation of how this scheme was conceived and implemented; and also the

factors that have made it a successful experiment in e-governance.

Executive Summary

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The Interactive Voice Response System (IVRS) was launched in June 2010 by the

Mid Day Meal Authority (MDMA) in Uttar Pradesh to track the number of

schools that served Mid Day Meals (MDMs) on any particular day. It also tracks

the number of children who have had lunch in the school on the prescribed

working days.

Mid Day Meal Scheme is a welfare scheme of the Govt. of India, implemented

through the State Governments and is the largest lunch programme in the

world. Consequently, a scheme of such scale, detail and budgetary allocation to

the tune of about Rs. 1700 crore in U.P. alone and 10,000 crore for the whole of

India annually, required a stringent monitoring system. This is a crucial

requirement, as the economics of the scheme reveals that even a small increase at

any one point would escalate the total costs to a great extent.

The guidelines of the Mid Day Meal Scheme too provided for a web-enabled

Management Information System. In 2007, a proposal for the same was submitted

by the MDMA, with options for monitoring on daily and weekly basis. It stated,

among others, that a web portal, with a messenger service that could record

information on a database be created. (Refer 3 for original concept paper).

However, not much was done in the government echelons to follow-up this

proposal. Nearly three years later, the first Joint Review Mission (JRM) of the

Government of India was held in February 2010. The JRM comprised of:

1. Mr. Gaya Prasad, Director, MHRD, Govt. of India

2. Mr. Amod Kumar, Director, Mid Day Meal Authority, U.P.

3.Dr. Rubina Maiti, UNICEF, U.P., Lucknow

4. Mrs. Arundhati Dhuru, NGO Representative and

5. Mr.R.K. Mishra, Chief Consultant, Govt. of India

The team stated that “There is no proper mechanism to monitor the

implementation of the MDM scheme in terms of regularity, quality and quantity

below district level. It is suggested that for proper monitoring, a web-based MIS

for transmitting data directly from the school to state level should be developed. It

was found that an action plan for SMS based daily MIS should be developed. It

was found that an action plan for SMS based daily MIS was prepared at the MDM

authority level in July 2007, which may be helpful in designing and development

of such a monitoring system”. Thereafter, the proposal received renewed

impetus. The IVRS based concerned monitoring system was devised in a span of

Background

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2-3 months. It was finally tested in June 2010, and became fully operational in

July 2010.

At this point, it is useful to understand the system that was in operation for

monitoring until June 2010. As per this system, an MDM register is filled up at

the school, block and district level. In most cases, in practice, this number used to

be taken from the attendance register, rather than through a head count of the

number of students who availed of the facility on any particular day. Apart from

that, the time-lag in submission of this information leaves scope for distortion of

information and submission of manipulated data at times. Consider the case when

the average attendance in any school is about 55-60%, and the MDM register has

recorded the data as 80-90%. This was a pointer that only accurate and timely

information could help clarify such situations.

The data provided by the schools is compiled at the block level, and then at the

district level. The compiled data is then submitted to the Mid Day Meal Authority

on a monthly basis.

A ringside view of the Mid Day Meal Scheme indicates its scale and detail, as

described below. It also helps appreciate the need for a regular and efficient

monitoring system:

A hungry child is less likely to attend school regularly. Hunger drains them of their will and

ability to learn…chronic hunger also delays or stops the physical and mental growth of

children1

The Mid Day Meal Scheme was launched in accordance with the guidelines of the Government

of India in September 2006. As per the scheme, cooked meal was to be provided to students of

class I to V in Government, local body, government-aided schools and those with

EGS/AIE1centres. Since October 2007, upper primary schools under the government and

government-aided category too were included under the scheme. At present, the scheme covers

1,08,063 primary schools and 44,684 upper primary schools. In all, 1,70,64,944 children from

primary and 44,13,943 from upper primary schools benefit from this scheme.

Initially, when the National Programme of Nutritional Support to Primary Education (NP-

NSPE) was launched way back in 1995, it essentially offered free supply of food grains @ 100

gms per child per school day, and subsidy for transport of food grains. The State Governments

1 Education Guarantee Scheme/ Alternative and Innovative Education. Centres with EGS/AIE have been

covered under the National Programme of Nutritional Support to primary education (NP-NPSE) since

2002, while the programme was initially launched on 15 August, 1995 as a Centrally Sponsored scheme,

starting with 2408 blocks of the country. [Reference: National Programme of Nutritional Support to

primary education, 2006 – Guidelines for Mid-Day Meal Scheme)]

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were to provide for the cooking cost. Unable to fund the cost of cooking, they began

distribution of food grains, which defeated the purpose behind the Mid Day Meal

Scheme. However, these difficulties were overcome when the Mid Day Meal Scheme was

launched.

As we know, malnutrition adversely affects Universalisation of Elementary Education. The

objective of the Mid Day Meal Scheme is to provide the children with a basic nutritious meal,

which in turn would increase the concentration and retention levels in class. It would also bring

about higher attendance rates and lower drop-out rates. There is also evidence to suggest that

apart from enhancing school attendance and child nutrition, Mid Day Meals have an important

social value and foster a sense of equality when children sit together and share a common

meal.

The calorific requirement within the scheme amounts to 450 cal and 12 g protein for the

primary level; and 700 cal and 20 g protein for the upper primary students. The menu prepared

in accordance with this requirement is as follows:

Day of the

week

Menu

Monday Roti sabji with soyabean or dal ki bari with namkeen

dalia

Tuesday Rice sabji with dal or chawal sambhar

Wednesday Khadi chawal or kheer

Thursday Roti, vegetable, dal or namkeen dalia

Friday Tehri

Saturday Rice, vegetable with soyabean or kheer

Implementing a programme of such magnitude and specifications calls for detailed and

thorough planning and budgeting. As per this scheme, the cost of food grain, construction of

kitchen, devices and transport is borne entirely by the centre. Only the „conversion cost‟.i.e.,

cost of condiments/vegetables/oil and the salaries of the cooks are shared between centre and

state in a 75:25 per cent ratio. This conversion cost works out to Rs.2.61 per student per meal at

the primary level, and Rs.4.03 for the upper primary level. The food grains are obtained directly

from the FCI go-down nearest to the school. It is the responsibility of the FCI to ensure

continuous supply of adequate food grains in its depots. The funds under the „conversion cost‟

are transferred from the centre to the state in accordance with the relevant policies and

procedures applicable in passing on funds to the State governments. Further, the funds under

„conversion cost‟, kitchen construction and kitchen devices are directly allocated by the State

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Govt. to all District Magistrates who are nodal officers for implementing the scheme. The

District Magistrates are assisted in this task by their District Basic Education Officers and an

MDM cell comprising a coordinator and a computer operator. The funds for transportation

expense and MME (management, monitoring and evaluation) are allocated to MDMA.

The funds allocated by the State Govt. for conversion cost are transferred to gram nidhi-V

accounts of about 52,000 gram panchayats in the state through the respective district treasury

for implementation of this scheme in the rural areas. In the urban areas, it is transferred to the

accounts of wards. In some cases, the scheme is implemented through NGOs in the urban areas.

The NGOs get the expenses reimbursed as per norms after they implement the scheme. There is

also a 7.5 per cent hike in the budget allocated to the MDMS every two years.

The table below shows the number of schools and students availing of the scheme.

Profile of Schools/Beneficiaries

Primary Upper Primary Total

No. of Schools 1.08 Lac 0.44 Lac 1.52 Lac

Enrolled Students 158.65 Lac 44.80 Lac 203.45 Lac

Students availing MDM 102.03 Lac 35.24 Lac 137.28 Lac

Number of school days in a year -220

In case of drought, the scheme runs for about 41 more days during summers

Looking at the magnitude of the scheme, it is easy to appreciate why such a

strong need was felt for a suitable monitoring system. It is evident that the existing

monitoring system in operation was not sufficiently effective. Under the NP-

NSPE, maintenance of accounts and generation of reports was generally being

done manually, which was time-consuming, error-prone and labour intensive. It is

difficult to generate analytical systems using such manual methods. The MDM

register, which indicates details of all transactions made and materials used, is to

be filled up by the Panchayat Sachivs and Gram Pradhans, but this was not being

done in practice. Further, there were several problems with this structure of

reporting, namely:

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No school-wise reports were available at either the district or state level,

which makes it difficult to identify the schools in which the meal was not

served.

When there is a monthly time lag in submission of data, the scope for

manipulation and distortion of data remains higher. Such inaccurate reports

(that consumption was higher than the actual figures) make a dent in the

scarce resources available for welfare schemes.

Thirdly, when the time lag is as much as a month, remedial measures itself

would get delayed, thereby jeopardising the efficacy of this scheme.

Fourthly, during exceptional circumstances (such as meal not being

cooked/more than 90 per cent students availed the meal/ food not being

cooked for more than three days), there were no „exception reports‟

available to explain the reasons for the same.

In case of delay of information from any particular school, the data would

take a month to become available.

The physical inspection and monitoring of the scheme was being done on a

random selection basis, which did not give a complete picture of the

situation.

Finding a Solution through IVRS

The MDMA, for long, had been on the look out for a suitable monitoring

system. As transparency of information plays an important role in any monitoring

system, it was felt that instant information is most transparent, as delays would

give room for manipulation. The system would have to be one in which

information could be extracted from the base level (school level) instead of the

nodal (district) level. Taking all these aspects into consideration, a proposal for a

monitoring mechanism using short messaging service (SMS) was submitted in

2007 by MDMA. As mentioned in the previous section, not much was done for

taking up this proposal until the recommendations from the Joint Review Mission

held in February 2010.

The path to acquiring a suitable system went through its fair share of trial and

error. At first, the SMS (short messaging service) method was explored, in which

the teachers would have to pay to send the SMS across some networks. But this

would leave room for excuses from the teachers‟ end. For example, they could cite

that it costs them, or that they were busy, or that the number was not reachable,

etc. Even if their expenses are reimbursed, it would add to the burden of financial

transactions and audits. Another problem was that the teachers would need to be

trained in composing and sending messages. While it was possible to create a

standard template in which to send the information, any change in this at a later

stage would require another round of training.

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In the second phase, the option of providing the data by SMS through different

networks on different mobile numbers was explored. While this system could

work as long as the SMS was sent within the same network, it would be

cumbersome, complex and expensive across networks, where problem of transit

loss of SMS still remained unresolved. Besides, all these methods still relied on

the „push‟ mechanism, in which the personnel at the grassroots level had to take

the initiative to send the information. Aware that a purely computer-based system

would not be effective at the village level, but that the mobile phone had become

common place, the MDMA was on the look out for a system that could utilise the

interface between computer technology and the mobile.

A shift at the conceptual level explored the possibility of the „pull‟ method, i.e., of

extracting information from the field level. In that case, the information would be

both regular and timely. It was at this stage that a monitoring system using IVRS

as the technology was devised. This technology allows computer-generated calling

software to be responded to through the keying in of numbers on the phone.

Although the technology as such is already widely used by airlines and railways to

track timing and make reservations, its use in monitoring a scheme on such a large

scale was a new and unique concept. .

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Until this time, a „pull‟ mechanism on such a mass scale was yet unheard of. But

ultimately a mechanism was devised and a live demonstration convinced the users

and stakeholders about its efficiency and viability.

The Interactive Voice Response System is a technology in which computer-

generated calling software is to be responded to through the keying in of numbers

on the phone. It can be used to feed hundreds of phone lines into an IVR

programme and then into the internet. This is followed up by the creation of a

website that displays data from these online data bases. This mechanism is

illustrated through the diagram below:

As the diagram illustrates, the server at the call centre is the nodal point from

What is IVRS?

School

- Registration

- Daily Attendance

- Confirmation

MIS Application & DSS

Mid Day Meal

Functionaries at

District/ Division /

State levels

MIS Reports / Exception

Reports etc of all schools

are available here for

decision making at

different levels

OB

D

Acknowledgement

Information

through IVR

through IVR Internet

Virtual

Number(s)/

Server

OBD

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which information is collected, processed and transmitted to the relevant website.

At Level One, an outbound call is made from the centre‟s server to the school,

which is transmitted through the mobile network transmitter. The mobile numbers

of the headmasters/teachers are already fed into the system. Each headmaster or

teacher keys in the necessary data and hangs up. The data is recorded in the

computer software. Finally, the data for the entire state is compiled and made

available on a website. Through the internet, this data finally reaches the Mid Day

Meal functionaries at the District/Division and State levels.

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To implement this system, a plan was drawn up, and all necessary approvals were

taken from the Government of UP, such as the Governing Body of the MDMA

headed by the Chief Secretary and issuance of a Government Order. At the next

stage was the more important task of human resource management, which was to

take into confidence all the stakeholders. An informal meeting was organised with

the teacher representatives. The teachers tended to be a highly „organised‟ lot.

Since neither mobile phones nor any new SIM cards were to be given to the

teachers and the system was to rely on using the personal mobile phones of

teachers, it could fail if the teachers refused to cooperate in using it to feed the

data. To overcome this aspect, a special live demonstration of the mechanism was

organised for the teachers. In all the 820 blocks of the state, trainers from the

Head Quarters were sent, not only to train and give live demonstration, but to

generate excitement and curiosity, and inculcate a sense that they are all in this

exercise together.

The demonstration provided all teachers with an opportunity to actually key in the

information from their cell phones to this automated call and see the information

transferred on the data base. The session also elicited some valuable responses

from the teachers that were incorporated into the mechanism. A separate training

was held for all the MDM DCs in April 2010 at Lucknow with the support of

UNICEF. The DCs were trained about IVRS, and feedback taken from them.

How Does the IVRS Work? The IVRS system entails placing an automated call to

the headmaster of each school. The calls are made from the number

8808611111. A pre-recorded voice asks how many mid day meals the school

prepared that day. The headmaster keys in the number and hangs up. The whole

process does not take more than 30 seconds. In case the head master is unable to

take the call, the call automatically goes to the teacher who comes next in the

hierarchy, and then to the next. In case the teacher/headmaster misses out on

replying to the call, s/he could also give a missed call to the same number for

being called back by the System again so that he need not spend out of his

pocket. A full-fledged system of frequency of calls, call escalation, auto SMS for

defaulters sent to the upper rungs in the official hierarchy has been designed so

that data is captured any way. Beyond this, there is a helpline or toll free number

for feedback, or to convey any kind of information related to the scheme. If the

meal was not served, the headmaster/teacher would punch in “0”. Any change to

be made in the data would also have to be made on the same day. The entire data

base for that day is compiled within 2-3 hours of the meal being served. (Refer

Annexure-1 for transcript IVRS call)

The Process of IVRS

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A monthly meeting is held between the village Pradhan and headmasters of all

schools, wherein the headmasters are required to verify or correct the information,

which is immediately uploaded into the system. While the concerned

functionaries have access to this data on a daily basis through a login and

password, a weekly district-wise report goes to the concerned DMs by auto-

generated e-mails from the System. A list of the schools in which lunch has not

been served for the last seven days is provided in this information. The DM now

has adequate information based on which remedial action could be taken.

Operationalising the IVRS: It has taken 2-3 months to conceptualise, devise and

provide a technical format to this system. To begin with, all the schools in the

state were „codified‟ and mobile numbers of about 4.5 lakh teachers

collected. Since the system generates calls to 1.52 lakh schools within a two-hour

time frame, 60 PRI (Primary Rate Interface)2 lines were hired, which was the only

way through which 1800 calls could be made simultaneously, at the rate of 30

calls on each line. The telephone numbers of all concerned „data providers‟

(headmasters/teachers, etc) are also programmed as per hierarchy and the

appropriate algorithm worked out. A call centre with ten seats was also set up for

human interface in the virtual system. The test run of this system began in June

2010; and it has been running successfully since July 2010.

Costing: The expenses involved in the IVRS work out to be very economical at

Rs. 25 per school per month. This is inclusive of the costs of technology

development, system installation, infrastructure and regular operational costs.

However, the unit of payment is data; not the number of calls made – no data

means no payment to the vendor despite any number of calls that the vendor

would have made to fetch the data. A third party independent technical auditor has

also been roped in so as to check any data fudging in the System.

Since the data is compiled on a daily basis on www.upmdm.in, the monthly report

provides a complete profile, from which trends could be deduced and their reasons

explored.

2 The Primary Rate Interface (PRI) is a standardized telecommunications service level

within the Integrated Services Digital Network (ISDN) specification for carrying multiple

voice and data transmissions between a network and a user.

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A brief summary of the situation before and after helps recognize the advantages

of the IVRS:

Before the IVRS system was put in place, it would have been impossible to

tell how many meals had been cooked on any particular day. But now, it is

possible to tell exactly how many meals were cooked; and that too by the

end of the same working day.

The IVRS has brought in the system of daily reporting, where as earlier it

would take a month to generate the compiled report.

Since the day-wise report is available at the end of each working day, it

means that remedial action may be taken immediately, rather than at the

end of the month.

The IVRS system is able to generate school-wise data. The earlier system

was unable to generate school-wise data, as the data used to be compiled

for the entire district. But now, it is possible to know the exact number of

schools in which meals were not cooked; and also the exact number of

students who have had lunch in each of the schools.

Since IVRS gathers information directly from the base level, i.e., the

schools, the scope for distortion of data at the block or district level is

eliminated. The earlier system, on the other hand, left much scope for such

manipulation at both block and district levels.

The IVRS provides for the data to be displayed on the website

www.upmdm.in, every day, which enables functionaries at

Country/State/District and Block level to access the data by using a

password. As of now, the data is password protected due to security

reasons. Weekly reports are e-mailed to the DMs so that the information is

brought to their attention.

As per IVRS, print outs of the monthly reports (compiled from daily

reports) are made available to all school headmasters for verification, who

verify this at the time of their monthly meeting. In case of any discrepancy

or correction, the data can be rectified at this level and the same is updated

on the IVRS.

IVRS ensures that the teacher or headmaster does not have to spend a

single penny while providing information. Earlier, the headmaster/teacher

would have to make the effort to inform the ABSA5 either directly or

telephonically in case meals were not cooked. The fact that the teachers do

not have to spend from their pocket itself has ensured the strengthening of

the IVRS. It also eliminates tasks of reimbursing and auditing such

telephone expenses.

The Situation Before and After

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For the BSA/ABSA, monitoring the Mid-day meals is an additional

responsibility; as s/he does not work exclusively for the Mid Day Meal

scheme. So, even in case of reports from headmasters or teachers that

meals were not cooked, this information would not be given the seriousness

it deserves. Eventually, the matter used to be brushed aside, or

concealed. In such cases, no remedial action would be taken. But now that

the IVRS generates daily reports, which is available on daily basis to the

District Magistrate, the BSA6 and up to the State level, it is not possible to

conceal the information.

The IVRS uses the „pull‟ method, whereby the user is able to independently

extract information from the data providers such as the head masters and

teachers within school hours. Earlier, it used to be in the hands of the

teachers to report or not report the situation.

The monitoring system prevalent earlier was based on manual physical

monitoring, which was laborious, time-consuming and error prone. More

over, it was done on a random basis. But IVRS ensures daily monitoring of

each and every school that falls under the MDMS.

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Decision Making: “Information is power”. Until the time when the IVRS became

operational, the decision-makers, such as the MDMA/ DM/BSA/ DC etc, did not

have timely and accurate information, based on which decisions could be

taken. For example, even if reports came that meal was not cooked, there was no

structured way to verify these reports.

Shri Sudhansu Tripathi, Chief Finance Officer of the Mid Day Meal Authority,

points out an important change in human interaction itself, ever since the IVRS

has been functioning smoothly. Discussions between partners and stakeholders

have become more „focused and straightforward‟, since it is now on the basis of

accurate data.

Whereas earlier the MDM register showed the attendance figures as the number of

children who availed meals, it is now done by an actual headcount at meal time.

Consequently, the record shows fewer children taking meals, indicating that the

earlier figures were probably inaccurate.

Further, it is possible to identify the schools in which meals have not been

cooked. For example, before the IVRS came into operation, nearly 27,440 schools

(out of 1.52 lakh schools) on an average were not serving meals, but after this

system, the number has reduced to around 7715, which is a drastic

difference. (See Annexure 2 for comparative data of July-September 2010 and

December 2010 obtained through IVRS). This data is verified by the headmasters

of schools. Selecting a district on random basis for comparison, for e.g., Ballia, the

July-Sep report shows 638 schools where the meal was not cooked. The

December report shows less than half that number, i.e., 235 schools where the

meal was not cooked.

The overall impact has been that the number of schools in which meals are not

cooked has reduced substantially. The data received over the last few months also

indicates a trend wherein the number of schools not serving meals is decreasing

over time.

In schools where meals have not been cooked, it is possible to identify these

schools in order to ascertain the reasons for the same and request for exception

reports. For example, if a large number of schools were not cooking meals, it is

most likely indicative of some systemic problem within. The IVRS conveys the

situation to the DC or DM through weekly reports. In such cases, it is unlikely

that it will be let off without questioning the concerned bodies, such as the

Impact of IVRS

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panchayat or the school headmasters, whose telephone numbers are available in

the report. While it is the responsibility of the panchayat (through the village

Pradhan) to implement MDMS, the system creates some level of pressure on the

Pradhans to ensure that the meal is cooked. They are aware that daily reports

reach all the authorities, right from the BSA to the Govt. of India. Consequently,

it has brought in greater accountability of the village panchayat.

The IVRS system has seen maximum acceptance from the teachers. The teachers

were vested with the duty of reporting non-compliance of the scheme to the

ABSA. Earlier, during the monitoring exercises, there have been cases where the

teachers have been suspended if the meal was not cooked; for no fault of

theirs. Although they might have reported the matter to the ABSA, there would be

no remedial action due to the heavy workload of the ABSA. (Monitoring of

MDMS is an additional responsibility of the ABSA). For e.g., if a situation comes

to light that a hundred schools have not served the meal, then it casts a poor image

of the ABSA, who would most likely conceal the information. This practice of

concealing then moves up from the ABSA to the BSA/ district level. In the IVRS,

the information provided by the teachers is available up to the Govt. level, thereby

eliminating the scope for concealment or denial of information.

However, creating acceptance for this system has had its share of resistance as

well. During the early stages, functionaries at the local governance level (the

ABSA, the pradhan), had alleged that the information provided through this

system was incorrect. MDMA also wanted to ensure that no information

distortion was occurring at the data-base level. To set the record straight, a third

party auditor has been introduced. This audit is conducted on a random basis,

which also included cross-checking the data. It was found that the information

recorded was correct, thereby validating IVRS as a system functioning as

planned.

There is always a chance that the headmaster or teacher could key in the wrong

figure, perhaps even deliberately. In such cases, says Tripathi, “a trend would be

visible in due course, and remedial action could be taken”.

However, the system is yet not able to provide data from 100 per cent

schools. The reasons need to be ascertained. In the schools where meals are not

cooked, the records also indicate that it is not the same set of schools where this

happens.

In the earlier system, only quarterly reports were generated. In the accounting

procedures, the amount allocated as fund itself used to be shown as expense

incurred. But now there is sufficient data to cross check the number of students

availing meals (i.e., number of meals cooked) with the amount of grain lifted and

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the conversion cost incurred, thereby making it possible to calculate the total

expense incurred. This could then be cross-checked with the fund allocated.

The successful functioning of the IVRS has enabled the creation of a cost-effective

and convenient mechanism, providing accurate figures for planning and

monitoring the MDMS. It has also set new trends in e-governance, so useful and

timely for welfare schemes across Uttar Pradesh and the country. At the National

Steering cum Monitoring meeting held at New Delhi on 20.10.2010, a live

demonstration of the IVRS was provided to its members, along with a concise

explanation of the pros and cons of the system. Convinced about its functionality,

the National Infomatics Centre (NIC), GOI is now in the process of developing

such a model for all states based on the Uttar Pradesh experience.

In view of the above factors, it may be recommended that the IVRS could be

scaled up across various functions within the Education sector, and also

extrapolated to other sectors that are much in need of transparent and timely

tracking and monitoring systems.

Conclusion and Recommendations

19 | P a g e

For the MDMA, it has been a deliberate decision to utilise and thereafter boost this

system one step at a time. Shri Amod Kumar, former Director of MDMA, says

the challenge is in using this information for proper planning. Some of the

feedback received about the IVRS indicated scepticism due to „over-information‟

that is being generated. However, Kumar felt that since the costs are as low as

0.2% of the entire expenditure, it is anyway worth having this system in place.

All efforts need to be made to obtain information from 100 per cent schools.

At present, the system „pulls‟ or extracts only one kind of data, i.e., whether meals

were served, and the number of children who have had meals. In future, this

system could extend to extracting other information such as attendance of students

and teachers.

MDMA is awaiting complete stabilisation of the system in order to introduce other

parameters such as codes for reasons why the meal was not cooked. Although this

was planned, it has been put on hold for the time being.

At present, this information is being used purely for monitoring purposes by the

MDMA. The plan is to make the data available on the public domain. The

information could be made available to other stakeholders through registration by

paying a token registration fee. Such a system could make the project self-

sustaining and provide a successful „business model‟ in future. While social

activists or NGOs could use the information, it would work as a social audit. This

automatically creates a mechanism of social audit and community ownership.

The bank accounts for the MDMS are now maintained at the school level as per a

Government Order. The accounts are being operated with the signatures of the

headmaster and the Pradhan, whereas earlier it used to be signed by the pradhan

and the panchayat sachiv. It is linked to Core Banking Solutions (CBS), which

enables tracking of withdrawals made for each school. By comparing the amount

of food grains lifted with the number of children who have had meals that month,

and further cross-checking with bank withdrawals, it is possible to generate a

complete country report. “As and when required, the government authorities too

could pick up the figures from the same site. Thus, the scheme will leave no scope

for bogus reporting”, reiterates Kumar.

The Way Ahead for the State

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Annexure- 1: Transcript of the IVRS automated call

To obtain school enrolment:

On the first working day of every month, an automated call is made from the number 88

086 11111 to obtain the school enrolment for that month.

Consider the call is being made to Shri Ram Aadhar Rawat Primary School, Morna, Block

Lambua, District Sultanpur. The call goes:

“Namaskar. Shri, Ram Aadhar Rawatji, this is a call from the office of the Mid Day Meal

Authority Office, Uttar Pradesh. We would like to verify your mobile number. Your name

is Ram Aadar Rawat, post is Headmaster, Primary School, Morna, Block Lambua. If you

would like this information to be repeated, please press “1”. If the information is correct,

please press “2”. If any part of this information is incorrect, please press “3”.

…the call continues…

This call is from the office of the Mid Day Meal Authority, Uttar Pradesh. This call is

being made to obtain the number of students currently enrolled in your school. Kindly

provide the total enrolment number in your school by entering the number on your phone,

followed by # (hash).

(For example, if the total enrolment number is 95, then press 9, 5, followed by # (hash).

The call goes: “You have entered the number ninety-five. To confirm, press

“1”. Otherwise, press “2”.

If the correct figure has been entered, it is confirmed by pressing “1”. Otherwise the

correct figure may be entered.

To obtain number of students who have had lunch on a particular day:

Similarly, an automated call is made from the number 88 086 11111 to obtain the number

of students who have had lunch that day. The call goes:

“Namaskar. Shri, Ram Aadhar Rawatji, this is a call from the office of the Mid Day Meal

Annexures

21 | P a g e

Authority Office, Uttar Pradesh. Please enter the number of students in your school who

have taken lunch today by pressing the digits between “0” and “9”, followed by #

(hash).

(For example, if 56 students had lunch that day, then press 5, 6, followed by # (hash). This

will be verified with the voice saying:

“You have entered fifty six. To confirm, press one, otherwise, press “2”. If the number

provided is correct, then press one. To change the number, press “2” to re-enter the

correct number”.

If the headmaster or teacher is unable to provide any of this information, or if the

headmaster or teacher does not get a call, s/he could give a missed call on the same

number. The call is returned within five minutes, and the headmaster or teacher may enter

the correct information. If a wrong figure has been entered for some reason, a repeat call

could be made on the same working day to the number 88 086 11111, to provide the

correct figure.

(Those schools which fall in the National Capital Region (NCR) may kindly add “0”

before dialling the number.)

However, if the headmaster or teacher is unable to provide the information (due to being

on leave, teaching/training, travelling, etc), then s/he needs to press * (star) to the call.

The voice says, “Are you unavailable to provide the information today?” If yes, press

“1”. Otherwise, press “2”. (If “1”, is pressed, the call goes to the teacher next in the

hierarchy from whom the information will be taken. If “2” is pressed, the information may

be entered.

For loss of mobile or change in mobile number: If the headmaster or teacher has lost

his/her mobile phone, or if there is a change in the mobile number, then a call could be

made on 88086 22222. The call disconnects after 3-4 rings.

There will be a return call within five minutes. The call goes: “Namaskar. this is a call

from the office of the Mid Day Meal Authority. Kindly enter you previous mobile number

by pressing the buttons on your phone. You will enter the number 9415836524# (for e.g.).

This will be verified by the message “The number you have entered is nine-four-one-five-

eight-three-six-five-two-four. To confirm, press “1”. Otherwise press “2”. Following

this, the new number may be entered. This is verified and becomes operational within two

22 | P a g e

days.

1800 1800 666 is a toll free helpline to convey suggestions or feedback regarding the mid-

day meal scheme. The call centre executives are available to take queries from 8 am to 4

pm on all working days. In case of a change in the headmaster/teachers, or change in the

address of the school, the updates may also be provided through this number.

At the end of every month, the data is made available at the monthly meetings of school

headmasters for verification. The data is also available on the website www.upmdm.in .

Note: These numbers are functional from 01.06.2010 onwards

The Daily Monitoring System is free of cost. To receive calls, to give missed calls on

the toll free number, you need not bear the expense.

Note: For some reason, if no lunch has been cooked in your school, then enter “0”

followed by # (hash) to the automated call.

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Annexure -2: Sample Data

This is a sample of the data available on the hyperlink www.upmdm.in.

Report of Mid Day Meals availed from 20.12.2010 to 28.12.2010

No. Of Schools No. Of Students

PS UPS

Sr No.

* District * PS * UPS * Total * Data Received from (Average)

* Meal Not Served In (Out of received data) (Average)

* Enrollment ( Collection under progress )

* Meal Served for (Average)

* Enrollment ( Collection under progress )

* Meal Served for (Average)

UTTAR PRADESH 105092 45583 150675 99812 7715 14832420 6695098 2863698 2284902

1 AGRA 1885 808 2693 1896 84 241382 121083 49191 40721 2 ALIGARH 1753 765 2518 1693 33 232646 93819 28083 32385 3 ALLAHABAD 2405 1076 3481 2452 69 423220 180944 66067 60569 4 AMBEDKARNAGAR 1284 582 1866 1336 169 198169 86628 32706 35351 5 AURAIYA 1029 496 1525 1029 50 100010 48730 21753 22074 6 AZAMGARH 2206 1037 3243 2467 122 395815 216911 83842 73813 7 BADAUN 2076 757 2833 1765 95 326762 133578 63188 39769 8 BAGHPAT 491 186 677 545 4 62679 42329 10116 10563 9 BAHRAICH 2235 981 3216 2006 239 397119 131702 27838 35864 10 BALLIA 1938 637 2575 1677 235 302783 123631 54427 37490 11 BALRAMPUR 1257 665 1922 1126 165 184012 72773 25679 16333 12 BANDA 1323 639 1962 1331 137 219661 82841 44965 32094 13 BARABANKI 1951 778 2729 1844 96 262858 134324 72523 55810 14 BAREILLY 2016 649 2665 1640 384 269054 94780 46851 23579 15 BASTI 1561 685 2246 1558 97 199916 109426 56432 41099 16 BHADOHI(SR

Nagar) 646 366 1012 740 30 152146 55817 30517 25283

17 BIJNOR 1756 750 2506 1598 48 186229 89955 59643 31899 18 BULANDSHAHR 1648 841 2489 1321 51 197693 73533 41335 23812 19 CHANDAULI 988 499 1487 964 55 200901 78124 33791 32469 20 CHITRAKOOT 891 441 1332 945 22 122732 55961 31562 23144 21 CSM Nagar 1326 496 1822 1208 147 171252 90330 47240 29863 22 DEORIA 1732 737 2469 1482 104 264801 108026 47597 32907 23 ETAH 1224 549 1773 1231 88 137420 80421 39135 25700 24 FAIZABAD 1346 575 1921 1327 94 203434 85933 31174 30472 25 FARRUKHABAD 1169 608 1777 1192 331 164797 53489 36879 21167 26 FATEHPUR 1711 702 2413 1706 160 231943 110777 35845 38871 27 FIROZABAD 1492 602 2094 1337 213 136779 67605 30011 19259 28 G.B.Nagar 464 218 682 356 2 54362 21508 6096 6781 29 GHAZIPUR 1774 808 2582 1738 68 268235 159628 51049 47145 30 GHAZIYABAD 834 380 1214 719 116 121553 41369 15364 12635 31 GONDA 1888 887 2775 1875 314 318905 127044 51872 37243 32 GORAKHPUR 2020 788 2808 1766 101 222926 130581 54973 38437 33 HAMIRPUR 798 385 1183 759 28 107559 42488 24101 19149

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34 HARDOI 2577 1014 3591 2451 82 470608 196690 97853 76245 35 HATHRAS 957 454 1411 909 39 114034 50911 16109 18644 36 ITAWAH 1189 583 1772 947 151 103755 33649 24384 15079 37 J. P. NAGAR 1052 449 1501 1007 37 116257 55232 19114 16770 38 JALAUN 1259 586 1845 1294 45 140358 64412 24074 27781 39 JAUNPUR 2264 884 3148 2192 98 439184 206002 60156 58904 40 JHANSI 1164 540 1704 1243 8 164205 68049 33521 30597 41 KANNAUJ 1047 469 1516 1045 70 116843 62887 39851 24581 42 KANPUR DEHAT 1559 669 2228 1446 139 122003 64401 45101 24986 43 KANPUR NAGAR 1674 668 2342 1621 36 161366 90760 30718 35374 44 KASHIRAM NAGAR 920 460 1380 959 112 135509 63261 17983 17383 45 KAUSHAMBI 924 471 1395 1055 187 162291 67000 15408 15976 46 KUSHINAGAR 1804 824 2628 1916 136 288350 158840 52012 40567 47 LAKHIMPUR KHERI 2379 1123 3502 2367 36 421415 182591 87724 73442 48 LALITPUR 929 482 1411 881 69 150075 53051 32613 24324 49 LUCKNOW 1408 508 1916 1033 121 183783 54605 19812 17921 50 MAHOBA 667 353 1020 681 63 81050 37938 21895 15905 51 MAHRAJGANJ 1312 657 1969 1347 144 233484 103124 39015 31206 52 MAINPURI 1509 573 2082 1460 123 115407 84200 32974 29927 53 MATHURA 1257 582 1839 1152 85 109094 64844 31674 24032 54 MAU 1093 528 1621 1048 80 202744 70861 30658 29449 55 MEERUT 992 492 1484 968 48 105350 52915 17818 19150 56 MIRZAPUR 1487 579 2066 1454 68 262677 111115 37799 36290 57 MORADABAD 1963 852 2815 1638 101 243435 111776 53677 32659 58 MUZAFFARNAGAR 1395 648 2043 1198 217 173931 72946 37776 23065 59 PILIBHIT 1200 566 1766 1254 102 140944 77150 57496 33220 60 PRATAPGARH 1761 600 2361 1574 129 235545 121046 38751 34411 61 RAE BARELI 1320 521 1841 1168 176 199112 73339 37164 24912 62 RAMPUR 1282 560 1842 1290 60 174820 70929 20881 23046 63 SAHARANPUR 1381 587 1968 1484 76 165090 88254 34121 31723 64 SANT KABIR NAGAR 1008 439 1447 920 61 144936 63947 28032 20883 65 SHAHJAHANPUR 2333 889 3222 1790 137 337865 113279 54246 38748 66 SHRAWASTI 797 384 1181 717 175 95806 36286 25627 10851 67 SIDDHARTHNAGAR 1555 710 2265 1444 94 210686 119944 40731 33164 68 SITAPUR 2622 1111 3733 2584 160 447951 165752 58645 56516 69 SONBHADRA 1298 568 1866 1252 43 206895 91169 37434 33819 70 SULTANPUR 1451 609 2060 1449 81 171150 110940 52930 40990 71 UNNAO 2048 791 2839 1919 144 222619 123220 51306 43173 72 VARANASI 1138 427 1565 1026 31 182040 111695 54770 45439

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Status of Mid Day Meals availed from 01.07.2010 to 30.09.2010

No. Of Schools No. Of Students

PS UPS

Sr No.

* District * PS * UPS * Total * Data Received from (Average)

* Meal Not Served In (Out of received data) (Average)

* Enrollment ( Collection under progress )

* Meal Served for (Average)

* Enrollment ( Collection under progress )

* Meal Served for (Average)

UTTAR PRADESH 105092 45583 150675 97529 27440 14832420 4551986 2863698 1299747

1 AGRA 1885 808 2693 1675 419 241382 83518 49191 20823 2 ALIGARH 1753 765 2518 1647 474 232646 64064 28083 18217 3 ALLAHABAD 2405 1076 3481 2346 342 423220 136852 66067 38857 4 AMBEDKARNAGAR 1284 582 1866 1205 297 198169 60147 32706 18028 5 AURAIYA 1029 496 1525 993 300 100010 31519 21753 13515 6 AZAMGARH 2206 1037 3243 2224 876 395815 107350 83842 35726 7 BADAUN 2076 757 2833 2044 850 326762 91920 63188 21669 8 BAGHPAT 491 186 677 421 68 62679 27559 10116 4444 9 BAHRAICH 2235 981 3216 1825 782 397119 70442 27838 15840 10 BALLIA 1938 637 2575 1665 638 302783 78028 54427 20793 11 BALRAMPUR 1257 665 1922 1136 441 184012 48499 25679 7575 12 BANDA 1323 639 1962 1404 347 219661 67394 44965 21692 13 BARABANKI 1951 778 2729 1658 302 262858 86604 72523 25664 14 BAREILLY 2016 649 2665 1528 565 269054 69542 46851 12480 15 BASTI 1561 685 2246 1446 383 199916 69779 56432 21144 16 BHADOHI(SR

Nagar) 646 366 1012 743 170 152146 40614 30517 15991

17 BIJNOR 1756 750 2506 1834 525 186229 62562 59643 20078 18 BULANDSHAHR 1648 841 2489 1532 201 197693 71061 41335 20745 19 CHANDAULI 988 499 1487 949 198 200901 57742 33791 19240 20 CHITRAKOOT 891 441 1332 974 131 122732 49228 31562 17298 21 CSM Nagar 1326 496 1822 1272 283 171252 71889 47240 18000 22 DEORIA 1732 737 2469 1682 620 264801 78576 47597 22506 23 ETAH 1224 549 1773 1084 389 137420 44201 39135 12065 24 FAIZABAD 1346 575 1921 1188 161 203434 64924 31174 20786 25 FARRUKHABAD 1169 608 1777 1207 467 164797 43891 36879 15133 26 FATEHPUR 1711 702 2413 1717 295 231943 85551 35845 26002 27 FIROZABAD 1492 602 2094 1339 560 136779 45905 30011 11047 28 G.B.Nagar 464 218 682 350 36 54362 22074 6096 4429 29 GHAZIPUR 1774 808 2582 1367 473 268235 74506 51049 19424 30 GHAZIYABAD 834 380 1214 526 89 121553 26973 15364 6343 31 GONDA 1888 887 2775 1843 773 318905 81452 51872 18427 32 GORAKHPUR 2020 788 2808 1600 606 222926 76591 54973 18249 33 HAMIRPUR 798 385 1183 896 123 107559 41566 24101 15790 34 HARDOI 2577 1014 3591 2372 635 470608 131824 97853 40210 35 HATHRAS 957 454 1411 921 262 114034 33223 16109 11106 36 ITAWAH 1189 583 1772 1109 218 103755 36410 24384 15350 37 J. P. NAGAR 1052 449 1501 977 188 116257 41209 19114 8836 38 JALAUN 1259 586 1845 1182 348 140358 36455 24074 13916 39 JAUNPUR 2264 884 3148 2153 704 439184 125943 60156 32977 40 JHANSI 1164 540 1704 1182 157 164205 53114 33521 21099

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41 KANNAUJ 1047 469 1516 1098 194 116843 54940 39851 17142 42 KANPUR DEHAT 1559 669 2228 1168 250 122003 42119 45101 12079 43 KANPUR NAGAR 1674 668 2342 1635 177 161366 67339 30718 22985 44 KASHIRAM NAGAR 920 460 1380 782 405 135509 25298 17983 6527 45 KAUSHAMBI 924 471 1395 1012 253 162291 53383 15408 11137 46 KUSHINAGAR 1804 824 2628 1874 912 288350 78161 52012 18995 47 LAKHIMPUR KHERI 2379 1123 3502 2157 673 421415 104214 87724 33025 48 LALITPUR 929 482 1411 886 253 150075 40279 32613 16832 49 LUCKNOW 1408 508 1916 1154 238 183783 55472 19812 15878 50 MAHOBA 667 353 1020 631 175 81050 25802 21895 9372 51 MAHRAJGANJ 1312 657 1969 1350 624 233484 57105 39015 17172 52 MAINPURI 1509 573 2082 1492 331 115407 62152 32974 19708 53 MATHURA 1257 582 1839 1046 196 109094 50749 31674 15139 54 MAU 1093 528 1621 1079 191 202744 60484 30658 21472 55 MEERUT 992 492 1484 874 225 105350 35859 17818 11360 56 MIRZAPUR 1487 579 2066 1516 347 262677 83171 37799 21923 57 MORADABAD

Processing...

1963 852 2815 1713 566 243435 73000 53677 16601

58 MUZAFFARNAGAR 1395 648 2043 1242 250 173931 70879 37776 17866 59 PILIBHIT 1200 566 1766 1303 411 140944 49054 57496 16467 60 PRATAPGARH 1761 600 2361 1595 367 235545 86488 38751 21033 61 RAE BARELI 1320 521 1841 1284 271 199112 65080 37164 21332 62 RAMPUR 1282 560 1842 1277 353 174820 48278 20881 10556 63 SAHARANPUR 1381 587 1968 1504 333 165090 63260 34121 18991 64 SANT KABIR

NAGAR 1008 439 1447 951 471 144936 31664 28032 8561

65 SHAHJAHANPUR 2333 889 3222 1641 443 337865 75938 54246 18069 66 SHRAWASTI 797 384 1181 694 357 95806 20665 25627 3472 67 SIDDHARTHNAGAR 1555 710 2265 1403 675 210686 54556 40731 12628 68 SITAPUR 2622 1111 3733 2407 783 447951 109387 58645 29506 69 SONBHADRA 1298 568 1866 1193 168 206895 67583 37434 21339 70 SULTANPUR 1451 609 2060 1431 409 171150 69656 52930 21559 71 UNNAO 2048 791 2839 2023 338 222619 93481 51306 27403 72 VARANASI 1138 427 1565 898 105 182040 85789 54770 22104

This is a password-protected site. Once the log in and password are entered, one

can view the district details as given below. One needs to enter the dates for which

data is required. By clicking on the district name, one can view details for each

block in that district. By clicking on the name of the required block, one can view

the details of each school, both urban and rural.

27 | P a g e

UNICEF

3/194, Vishal Khand, Gomti Nagar

Lucknow, Uttar Pradesh 226010

Mid Day Meal Authority

Third Floor, Uptron Building

Lucknow, Uttar Pradesh