3 evaluation-study-mp-gpsd-act2010-fin

Evaluation and Management Audit of the Madhya Pradesh Lok
Sewaon Ke Pradan Ki Gurantee Adhiniyam, 2010 (Madhya
Pradesh Guarantee of Public Service Delivery Act, 2010)

AN independent report
FEBRUARY 2012

Prof. B Muralidharan, Advisor,

ABOUT THE STUDY

• This Study was commissioned by the School of Good Governance and Policy Analysis, an Autonomous Society registered under the Societies
Registration Act, 1860. It functions from c-324, 3rd Floor, Narmada Bhawan, 59 Arera Hills, Bhopal - 462011 - Madhya Pradesh- India Phone:+91 755
2570216 Web: www.sushasanmp.in
• The Commissioning Manager is the Dr. Akhilesh Argal, Director (Governance). He can be contacted at akhilesh.argal@yahoo.com
• The Study spanned an overall period about 2 months, and covered the state of Madhya Pradesh, India.
• Two field visits were conducted: one, in Bhopal and the other in Vidisha District.

• This study was conducted by the Centre for Organization Development, P.O. Cyberabad, Madhapur, Hyderabad - 500081 - Andhra Pradesh - India
Phone: +91 40 23118889 Web: www.codhyd.org
• Prof. B Muralidharan, Advisor, Centre for Organization Development, Hyderabad was the evaluator; He can be contacted at murali@codhyd.org or
rumlia@gmail.com and on Phone: +91 9818101646

Sl. No. Contents Page No.

1 Executive Summary 3

2 Evaluation of the MP Guarantee of Public Service Delivery Act 2010 - Background and Rationale 4-6

3 Purpose, Objectives and Scope of the Evaluation 7-8

4 Methodology and Work Plan 9-10

5 Findings and Observations 11-72

5.a Evaluation 11-31

5.b Management Audit 32-71

6 Conclusions 72-73

7 Recommendations 74-75

8 A Note on Inclusion and Right to Services 76

9 Annexures 77

9.a Terms of Reference 78-80

9.b List of Persons Interviewed 81

9.c List of Documents Consulted 82-83

9.d Evaluator‟s Bio-data 84-87

9.e Acknowledgement 88

1. Executive Summary

in the context of the notified
Areas and Findings Recommendations
services
1. The Act has impacted a large number of
3. Efficiency and Administrative
citizens 1. The thrust on awareness building
Reforms have got a boost.
2. The Act provides key features such as a must be continued. Awareness
clearly defined service, a Designated Officer
Use of ICT, strengthening of as empowerment is a key to
responsible to deliver that service, a Time monitoring and coordinating good governance
mechanism have helped in 2. Continue to use ICT for both
Limit within which the service will be
awareness and to reduce
delivered, penalty in case of delay or denial, improvements.
physical interface between citizen
appeals and review processes 4. The impact on the citizens and government staff
3. 56 Services and 16 departments are covered and staff have been in 3. Balance the management
by the Act general very positive. There approach to accountability. Bring
4. The number of applications from October is enthusiasm amongst in rewards for excellent
2010 till date have crossed 9 10 million; departments and confidence
performance to offset the fear
services delivered are almost the same psychosis of penalties for erring.
in public. 4. Do not restrict excellent public
number
5. The programme of service to the implementation of
5. Awareness about the act poor, but improving
imlementation of the Act – an Act. Instill excellent public
6. Reforms undertaken to improve efficiency like
and even its expansion – service as a culture across
use of ICT have improved efficiency and government.
conformity to the Act is eminently possible.
5. Provide sufficient efforts to
7. New reforms like a PPP mode on the anvil Constraints of resources ensure that the PPP mode is
8. A separate department called the Public and rules have led to led designed and delivered well;
Service management Department under the innovative thinking – Lok document the entire process for
Chief Minister of Madhya Pradesh to signify Sewa Kendras on a PP others to learn.
the importance of the Guarantee 6. Given that still a large number of
mode with modest user
9. Coordination is good and visible; reviews have applicants are illiterate, use ICT
fees. to eliminate fear and middlemen
resulted in corrective action – like redrafting 6. The Act and the programme from the service delivery
of circulars in easy-to-understand language
have had significant mechanism.
and with a view to state „How to deliver the
national impact. 12 state
service?”
governments have
10. Sincerity in improving effectiveness, even
followed suit; at least 3
when efficiency [measured in terms of
more are in the offing; >
services delivered on time], is patently
50% of the states in India
visible and high. See for instance, two
impact surveys conducted.
11. Innovations in delivery and use of
technology are in the offing

Conclusions
1. the Act and the notified
services are extremely
relavant in the context of a
rights-based approach to
public service delivery.
2. Thanks to the Act and its
implementation,
Transparency, Accountability
and timeliness have
increased in the public
service delivery process in
Madhya Pradesh, especially

2. BACKGROUND AND RATIONALE FOR THE STUDY

Background:

The Legislative Assembly of Madhya Pradesh passed unanimously the MP Guarantee of Public Service Delivery Act in July 2010. The Act was a path-
breaking attempt to provide rights to citizens on essential services and guarantee their service delivery.

The Act had its origin in Citizens‟ Charters. Reviews by the state government of these charters found that while a lot of work had been done on their
formulation and efforts made to implement them, consistency across departments and individual government officers was absent. Much depended on
the drive and personality of responsible officers in different departments vis-a-vis implementation and results.

Independent studies across the country also revealed that the impact of Citizens Charters on service delivery was varied and positive results
depended too much on the enthusiasm of the local actors 1

Commenting about their experience, the Public Administration Select Committee, UK, observed:
“The Citizen‟s (sic) Charter has had a lasting impact on how public services are viewed in this country. The initiative‟s underlying principles retain their validity nearly
two decades on – not least the importance of putting the interests of public service users at the heart of public service provision. We believe this cardinal principle
should continue to influence public service reform, and encourage the government to maintain the aims of the Citizen‟s Charter programme given their continuing
relevance to public service delivery today.”

On Charter Mark, it commented: “Measures of user satisfaction can shed some light on the quality of public service provision. They should, however, be treated with
care because they are subjective and are sometimes based on less important considerations than service quality.”

However, the Committee noted that in the crucial area of outlining the standards of service that people could expect to receive “… the Citizen‟s Charter
programme was rather confused – promises contained in the charters were often vague and aspirational…” It went on to state “We recommend that there should be
clear, precise and enforceable statements of people‟s entitlements to public services. These should be in the form of Public Service Guarantees…”2

It is striking to note that at the same time in two different parts of the world – UK, considered one of the most developed nations and Madhya Pradesh,
a state considered as struggling to develop - the same theme was being taken up with the conclusions being almost identical.

In a National Consultation on Strengthening Delivery and Accountability Frameworks for Public Service organized by the Government of
Madhya Pradesh and UNDP, India, the Chief Minister of Madhya Pradesh observed:

“At the time of elections people are the most important. After that the government ignores them. The
CM, Ministers, and bureaucrats, all think that they are perfect and wisdom cannot reside outside this
group. In the case of MP, we had introduced One day Governance – Samadhan Ek Din Mein and we
had Citizens Charters.

But when we listened to the people, we found that no body looked at the Citizens Charters and no body
bothered about the details. We wanted, then, to introduce a Citizens Charter Act. There were a number
of doubting Thomases. But the question we asked was if we are giving rights through the Charters why
are we scared of fixing responsibility?

Thus was born the MP Lok Sewaon Ke Pradan Ki Guarantee Adhiniyam.”3

It was in the context of unclear Citizen‟s Charters and non-functional Sevottams, that the Government of
Madhya Pradesh, as stated above, decided to legislate select services as rights of the people in August
2010 and implemented from 25 September 2010 onwards. The legislation that was brought in – The
Madhya Pradesh Guarantee of Public Service Delivery Act 2010 – had the following features.

1
2007, Public Affairs Centre, Review of India’s Citizens Charters- A Decade of Experience, Public Affairs Centre, Bangalore, India
2
2008, House of Commons-Public Administration Select Committee, From Citizen’s Charter to Public Service Guarantees:
Entitlements to Public Services, House of Commons, London, UK
3
2012, Tina Mathur, Right to Public Services: A Comparative Perspective of Implementation of Guarantee of Public Services
in Select States of India, Centre for Organization Development, Hyderabad, India

4

1. Clearly stated services that will be specifically notified by the government
2. A time limit within which the service will be delivered [in days]
3. A Designated Officer of the government who will be held responsible for the service delivery to
each and every applicant
4. In the event of failure, a grievance redressal mechanism through a process of First and Second
Appeals
5. A scheme for penalty in the event of proven failure on the part of the Designated Officer by the
Second Appellate Authority.

In the first instance twenty six (26) services delivered by nine (9) departments 4 were notified. The choice
of services were determined by the following factors:
1. Importance of the service to the people, especially the poor and disadvantaged;
2. Willingness of the departments to get the services notified under the Act
3. Feasibility of guarantees: did a realistic chance exist of guaranteed service delivery within a fixed time frame?
4. No other law had already provided a guarantee similar to the one envisaged under the Act

Rationale for the Study:

Since the passage of the Act in September 2010 and its implementation, several developments have taken place.

1. Obviously impressed and inspired with the innovation that this Act brought in public service delivery, several state governments quickly
followed in succession enacting laws on similar lines.
2. The Government of Madhya Pradesh had done an impact study through a non-governmental organization in July 2010 of the status of
implementation of the Act. It also initiated another set of studies by three (3) institutions to do a follow up study in December 2011-January
2012.
3. The Madhya Pradesh Government, having implemented the Act for a year and on the verge of introducing more changes and learning from
new comers, again took the initiative of organizing a National Consultation on Strengthening Delivery and Accountability Frameworks
for Public Service, as stated above with the assistance of UNDP India. The consultation provided a fertile ground for an exchange of ideas
and different perspectives that came across from different parts of India.
4. Independently, the Centre for Organization Development, Hyderabad in collaboration with Oxfam India, a rights-based organization, was
planning to organize a Seminar on Right to Public Services in February 2012. The Seminar aimed at capturing the unusual phenomenon of
rights being conferred without agitations and protests, and the new federal spirit of India where states were willing to learn one from the
other.

Given these developments, the Government of Madhya Pradesh strongly believed that an independent evaluation of the MP Act and its implementation
will add value to its continued and consistent efforts to ensure that the guarantees promised are delivered in letter and spirit.

Thus on 27 January, the School of Good Governance and Policy Analysis, an autonomous institution under the aegis of the Government of Madhya
Pradesh, wrote to the Centre for Organization Development (COD) to undertake this study since they were already the first independent organization in
the country to organize a national Seminar on Right to Public Services.

4
Please see Annexure for a list of Departments and Services that were first notified.

5

3. PURPOSE, OBJECTIVES AND SCOPE OF THE EVALUATION

PURPOSE:

Madhya Pradesh is a state that is considered as a developing state within India that has shown remarkable
progress over the last decade. As of 2011 the state had a population of 72,597,565 of which 37,612,920
are males and 34,984,645 are females.5

1. Madhya Pradesh is the second largest state in terms of geographical area and sixth largest
state by population in India. The population of Madhya Pradesh is 72.59 million, and the
population density is 196 people per square kilometer. More than 75% of state population
resides in villages whose main occupation is agriculture. The literacy rate is 63.70%.
2. The Government of Madhya Pradesh implements, various social welfare as well as
development-related schemes and programmes through 57 functional departments having their
own administrative setup in 50 Districts.
3. The State considers delivery of effective and efficient services to its citizen is the foremost
challenge. It was felt that notwithstanding various initiatives of the Government like the citizens
charter, the citizens do not get the services from the responsible government officials in time
limits prescribed. The problem is more acute in rural areas particularly affecting weaker
sections and women.
4. There appeared to be general lack of accountability accentuated by casual attitude of some of
the field functionaries. The inability of the citizen to assert and their ignorance of the procedures
were adding to the problem.
5. Therefore, the Government of Madhya Pradesh passed the “Madhya Pradesh Lok Sevaon ke
Pradan ki Guarantee Adhiniyam 2010” (Madhya Pradesh Guarantee of Public Service Delivery
Act, 2010) in August 2010 and implemented from 25th September 2010. This land mark
legislation provides
5.1.1. Statutory justifiable right to the eligible citizen to obtain notified services within
stipulated time frame, from the designated officers, who are made legally duty
bound to provide the service to entitled applicant.
5.1.2. In case designated officer fails to provide service, a two-tier grievance redressal
mechanism in the form of first appeal and second appeal.
5.1.3. Imposition of penalty on the errant officials and compensation to the aggrieved
applicant who may have been wrongfully denied the service.
5.1.4. To implement above design of the act, it is made mandatory that every applicant
gets a receipt of the application for a notified service, indicating the date by which
the service will be delivered and in case the service is not provided by the date
indicated in the receipt by the designated officer, redressal mechanism may be set
in motion.
5.1.5. This initiative is a major paradigm shift in the policy regime of citizen charter that
was a mere intent of the government to a right based delivery, akin to shifting an
item from directive principal of the state policy to the area of fundamental right.

According to the Terms of Reference of this study, the purposes of the study are:

1. The Government of Madhya Pradesh, after about 15 months of implementation of the above Act,
desires an independent evaluation of the implementation of the Act.
2. This evaluation of the Act and its implementation is to get an independent view of the promulgation
of the Act, the services rendered, and their relevance. This independent evaluation is deemed
necessary at this point of time, as the Government of Madhya Pradesh desires to know the impact
and introduce changes where necessary.
3. This report should be useful first and foremost to the residents of Madhya Pradesh in getting the
service efficiently and secondly to the Government of Madhya Pradesh to improve the service
delivery system.

OBJECTIVES:

5
2011, Census Of India, Population Chapter, Madhya Pradesh, Census of India, Delhi

6

Essentially after having implemented the Act for over a year and a half and after having lead discussions on
the subject in the country, the Government of Madhya Pradesh is keen to analyse and document the impact
and lessons learnt, as also find ways and means of improving its public service delivery.

Specifically, the objectives, as stated in the Terms of Reference, are:
1. The objectives of the Evaluation are to study if the principle components of the Act – Transparency,
Accountability and Timeliness - have been achieved and if so to what extent.
2. The study will cover the Implementation modalities of the Act and issues arising thereof.
3. The study will make suggestions to strengthen the Government of Madhya Pradesh’s attempts in
achieving its objectives in relation to the Act.

SCOPE OF THE STUDY:

Consistent with its purpose and objectives the scope of the study was set down as follows in the terms of
reference:

The study will cover the following areas:

1.The process adopted in passing the legislation.
2. The legal provisions related to Transparency, Accountability and Timeliness.
3. The choice of notified services.
4. The extent of implementation.
5. The study will cover the entire gamut of services notified under the Act.
6. The study will be based largely on the data derived from the MIS created specifically for
monitoring the implementation of the Act and other secondary sources.
7. Where feasible, the consultant will make 1 or 2 field visits.
8. Where feasible, the consultant will use his/her prior information / knowledge.

7

4. METHODOLOGY AND WORKPLAN
METHODOLOGY:

The methodology adopted for the evaluation study was two fold:

1. Primary observations in two (2) field visits to service delivering institutions and select interviews
with staff and applicants there:
a. Bhopal District Collectorate
b. Vidisha District – Tehsil Office, Municipal Office, and Electricity Supply Office
2. Primary Data collected by the Governemnt of Madhya Pradesh
a. The status of applications received, services rendered, pending applications, etc.
b. Survey of the impact of the Act over two periods: July 2011 and December 2011-January
2012
c. Documents shared by the government and available on the MIS related to issues like the
Lok Sewa Week, Digital Notarization, etc.
d. Hard copies of government orders, budget papers, circulars and other relevant documents
shared by the Government of Madhya Pradesh.
3. Interviews with Department Officials (especially the Head and his Deputy) and the Officers of the
School of Good Governance and Policy Analysis, Bhopal.
4. Cases where found appropriate, the consultant, has made use of his knowledge of the
implementation of similar Acts in others states of India.

This Methodology was adopted given the time constraints and as the Terms of Reference state: “the
objective of the study is to quickly assess the status of implementation and suggest recommendations for
the future on 3 dimensions [transparency, accountability and timeliness] which are possible with the data
available.”

WORK PLAN:

The work plan for the study was as follows:

Item Start Time End Time Remarks
Decided by
the School of
Approval of the Proposal
Good
Governance
Study – Preliminary Visit and Will be in
13-02-12 14-02-12
Discussion Bhopal
To be
provided by
List of Documents required by COD 14-02-12 22-02-12 School of
Good
Governance
Soft copy to
Analysis and Draft Evaluation 26-02-12 26-02-12 be mailed by
COD
Discussions and „Management‟ This will be in
27-02 28-02-12
Response to Findings Bhopal
Submission of the Evaluation Study
29-02-12
Report by COD

As part of the preliminary visit on 13th and 14th February, the consultant, apart from discussions with the
concerned officials visited the Bhopal Collectorate and the Vidisha District.

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Management Audit:

In addition to these, the consultant had developed a questionnaire, based on and adapted from those
utilized for ISO certification, to conduct an audit of the larger management processes. Please note that this
audit is NOT operational, financial, detailed process or project management audit. It is in the nature of audit
to understand the conformity or otherwise to larger strategic and general management areas. It was also
aimed to understand how the implementation of such an Act where the line departments (16 of them)
deliver services and the Public Service Management coordinates them; surely not a typical project
management structure.

The consultant shared the questionnaire with the client, and based on the initial response (filled in
questionnaire), sought clarifications and further details. The Audit table was finalized after a final round of
discussions with the client on 28th February 2012.

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5. FINDINGS AND OBSERVATIONS
5.a EVALUATIONS STUDY

Phase I: SEPTEMBER 2010- JULY 2011

As stated in the foregoing sections the Madhya Pradesh Guarantee of Public Service Delivery Act was
passed by the Legislative Assembly in August 2010 and implementation commenced from 25th September
2010.

In the first instance twenty six (26) services delivered by nine (9) departments were notified. The notification
captured the key features of the guarantee:
a) the serviceto be delivered on receipt of a full and complete application ,
b) the Designated Officer accountable for the delivery of the service,
c) the time limit for service delivery,
d) the First Appellate Authorityto whom an appeal could be preferred by the applicant ,
e) time to dispose the first appeal off, and
f) the Second Appellate Authority.

Please find below the first list of notified services and relevant details thereof.

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The first set of Notified Services under the MP Guarantee of Public Service Delivery Act 2010 –
September 2010

11

1. Energy Department
Sr No. Services Designation of Designated Defined timelines Designation of Defined timelines for Designation of Second
Officer for providing the First Appellate disposal of First Appellate Authority
Services Officer Appeal

1.1 Providing demand letter for individual
new electricity low tension connection
in places where such connection could
be provided through the existing
network
a. Zone/Urban Distribution Centre office Zonal/Distribution Centre 11 working days Executive 30 working days Superintendent Engineer
incharge Engineer

b. Rural Areas Distribution Centre 16 working days Executive 30 working days Superintendent Engineer
incharge Engineer

1.2 Provision of low-tension new electricity
connections through existing network
upon deposit of amount as per the
demand letter

incharge Engineer

incharge Engineer

1.3 Provision of temporary connections
upto 10 KVA upon deposit of fees where
there is no requirement of expansion in
the existing infrastructure

incharge Engineer

incharge Engineer

1.4 Issuance of demand letter for increasing
the load of equipments upon
submission of all the documents by the
consumer where there is no
requirement of expansion in the existing
infrastructure

12

incharge Engineer

incharge Engineer

1.5 Increasing the load upon deposit of
amount and supplementary contracting
as per the demand letter where there is
no requirement of expansion in the
existing infrastructure

incharge Engineer

incharge Engineer

1.6 Inspection of meter upon receiving
complaints from low-voltage consumers
regarding non-functional or fast meters
and to repair or replace such erratic
meters

incharge Engineer

incharge Engineer

13

2. Labour Department

2.1 Providing benefits of Maternity Rural Areas – 30 working days Sub divisional 30 working days Collector
Assistance Plan CEO, Janpad Panchayat officer, Revenue

Urban Areas –
Authorised Labour Officer
or municipal
Commissioner/Chief
Municipal Officer where
there is no labour office
2.2 Providing benefits of Marriage Rural Areas – 30 working days Sub divisional 30 working days Collector
Assistance Plan CEO, Janpad Panchayat officer, Revenue

Urban Areas –
Authorised Labour Officer
or Municipal
Commissioner/Chief
2.3 Providing benefits of Compassionate Rural Areas - CEO, Janpad 30 working days Sub divisional 30 working days Collector
Assistance on death Panchayat officer, Revenue

Urban Areas - Authorised
Labour Officer or
Municipal
Commissioner/Chief

14

3. Public Health Engineering Department

3.1 Minor repairs in the above ground part Sub Engineer 7 working days Assistant Engineer 7 working days Executive Engineer
of departmental handpump

3.2 Major repairs in the line assembly and Sub Engineer 15 working days Assistant Engineer 15 working days Executive Engineer
cylinder of hand pump in the subsoil
part of departmental hand pump

4. Revenue Department

4.1 Providing economic assistance in the Sub divisional officer, 30 working days Collector 30 working days Divisional Commissioner
event of loss of limb or death due to Revenue
natural tragedy according to Revenue
Book of circulars 6(4).

4.2 Providing copies of current Tahsildar or authorised 5 working days Sub divisional 30 working days Collector
Khasra/Khatauni revenue officer by him officer, Revenue

4.3 Providing copies of current land maps Tehsildar/Additional 15 working days Sub divisional 30 working days Collector
Tehsildar/Naib Tehsildar officer, Revenue
(according to their
jurisdiction)
4.4 Provision of Land Rights and Debt Book Tehsildar/Additional 15 working days Sub divisional 30 working days Collector
for the first time Tehsildar/Naib Tehsildar officer, Revenue
(according to their
jurisdiction)

4.5 Provision of Second copy (Duplicate Tehsildar/Additional 45 working days Sub divisional 30 working days Collector
copy) Land Rights and Debt Book Tehsildar/Naib Tehsildar officer, Revenue
(according to their
jurisdiction)

15

5. Urban Administration and Development Department
Sr No. Services Designation of Designated Officer Defined timelines Designation of Defined timelines for Designation of Second
for providing the First Appellate disposal of First Appellate Authority

5.1 Provision of new water 1) Nagarpalika/Nagar Panchayat Area - 30 working days 1) Sub divisional 30 working days 1) Collector
connection wherever Chief Municipal Officer officer (Revenue)
possible
2) Municipal Corporation area -Officer 2) Commissioner 2) Collector
authorised by Commissioner (if Municipal
authorised) Corporation
3) Commissioner Municipal Corporation 3) Collector 3) Divisional
Commissioner

6. General Administration Department
6.1 Issuance of domicile Tehsildar/Additional Tehsildar/Naib 7 working days Sub divisional 15 working days Collector
certificate Tehsildar (according to their officer, Revenue
jurisdiction)

7. Social Justice Department

7.1 First time sanction and 1. For Rural Areas - CEO, Janpad 60 working days Sub divisional 60 working days Collector
provision of Social Security Panchayat officer, Revenue
Pension
2. For urban areas
a) Commissioner, Municipal 60 working days a) Collector 60 working days Divisional Commissioner
Corporation

b) Chief Municipal Officer, 60 working days b) Sub divisional 60 working days Collector
Nagarpalika/Nagar Panchayat officer, Revenue

16

provision of Indira Gandhi Panchayat officer, Revenue
National Old Age Pension
2. For urban areas
Corporation


National Widow Pension

2. For urban areas
Corporation


National Disability Pension
2. For urban areas
Corporation


7.5 Provision of National 1. For Rural Areas - CEO, Janpad 30 working days Sub divisional 30 working days Collector
Family Assistance Panchayat officer, Revenue

2. For urban areas
Corporation

17

8. Tribal Welfare and Scheduled Castes Welfare Department

8.1 Disposal of applications for District Coordinator/Assistant 30 working days a) Collector 15 working days Divisional Commissioner
non-receipt of relief under Commissioner, Aboriginal Castes and
MP Scheduled Scheduled Castes Welfare Department
Castes/Tribes Emergency
Plan Rule 1995

9. Food, Civil Supplies & Consumer Protection Department
9.1 Issuance of New BPL Assistant Supply Officer in the urban 30 working days District Supply 30 working days Collector
Ration Cards area of District HQ Controller/ District
Supply Officer
Tehsildar in remaining urban and rural 30 working days Sub divisional 30 working days Collector
areas except urban area of District HQ officer, Revenue

9.2 Issuance of New APL Commissioner/ Chief Municipal Officer 30 working days District Supply 30 working days Collector
Ration Cards of urban body situated in the district HQ Controller/ District
Supply Officer

Commissioner/ Chief Municipal Officer 30 working days Sub divisional 30 working days Collector
of urban areas except urban areas of officer, Revenue
district HQ
Secretary of Gram Panchayat of rural 30 working days Tehsildar 30 working days Sub divisional officer,
areas of district Revenue

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ORGANIZATION STRUCTURE

The Government of Madhya Pradesh created a new Department called the Public Service Management
Department in September 2010 to coordinate the activities, monitor the progress of implementation of the
Act and suggest changes that might be required for improving implementation and enhancing effectiveness.
By a Government Order notified in the Gazette on 10th September 2010, the government also changed its
Business Allocation Rules to facilitate and streamline this process [Gazette Notification Ref. No. F-1-13 -
2010-ONE (1) dt. 10-09-2010].

A new position of District Managers was created for coordination and monitoring help. The posts were filled
with either experienced, recently retired officials or young, experienced Management Graduates from
reputed institutions. The experienced officers were provided training in ICT related areas, and the
management graduates were trained in government structures, rules of business, office procedures, etc. All
District Managers were trained on all aspects of the Act and nuances of the Act were highlighted.

AWARENESS:

The Act with the above Notified Services were in operation for a period of about 9 months (October 2010 –
June 2011). During this period a round of training was provided to all the relevant officials in the districits and
the state head quarters. These training sessions were based on instructions that were available for the
implementation of the Act and the specifics of each service.

Simaltaneously, the Government of Madhya Pradesh (GoMP) had organized a major campaign to raise the
awareness of the citizens to whom the rights were conferred and to elected representatives of the Local Self
Governments. The GoMP had carried out this campaign through various media:
- News Papers
- Television
- Radio
- Prominent display of hoardings and boards as dictated by the Act
- Word-of-mouth
To ensure that proper data was available for monitoring the progress of implementation the GoMP conceived
a simple software. While the records were being kept manually at the service rendering centres, they were
asked to enter data in a specific format that showed:
1. Applications received
2. Applications disposed off within the specified time limit
3. Applications rejected for being incomplete/in-eligble
4. Pending Applications:
a. Which Exceeded time limit
b. Within time limit
A sample of the data extracted from the MIS system for the period 1st October 2010 to 31st March 2011 is
reproduced below.

Sl.No Dept Applications received Pending applications
Service APPLICATIONS TOTAL Time Within total
DELIEVRED Rejected limit time
over limit
(1) (2) (3) (4) (5) (6) (7) (8)
1 GAD 191829 411 192240 229 39 268
2 Revenue 1930033 6387 1936420 947 360 1307
3 Energy 875315 3328 878643 292 3063 3355

19

4 LABOUR 16634 1808 18442 2 160 162
URBAN ADMN.
5 18253 144 18397 16 353 369
& DEVPT
TRIBAL
6 544 5 549 0 0 0
WELFARE
7 Social justice 169285 17296 186581 291 1941 2232

FOOD &CIVIL
8 49034 1922 50956 0 423 423
SUPPLY

Pub. Health
9 11078 1 11079 0 0 0
Engg. Dept.

Total 3262005 31302 3293307 1777 6339 8116

As can be observed a substantial majority of the applications were disposed off on time. A minority of
applications were rejected and a further small minority of valid applications had not been disposed off within
the stipulated time limit.

A STRATEGIC AND DETERMINED MOVE BY THE GOMP:

Despite getting kudos from all, and having by this time [July 2011] been emulated by other state
governments like Uttar Pradesh, Delhi, Punjab, the GoMP did not rest on on its laurels.

In an appreciable move, they decided to study the impact of the implementation further not just through MIS
reports that essentially came through its own channels, but by conducting a survey through a third party- the
Jan Abhiyan Parishad, an autonomous society. The study commissioned in July 2011 had an intersting story
to tell.

FIRST IMPACT STUDY

The study was based on interviews [primary data collection] and on secondary sources from the government
records. The survey was conducted in 22 Blocks of 11 Districts of 10 Divisions of the state. In all 1225
respondents were contacted. Approximately 490 were applicants for services, about 415 general public and
300 elected representatives of the Local Self Governments.

The results were revealing. Some highlights follow:

1. Only 1 in 4 (302 out of the 1225) were aware of the features of the Act;
2. Even fewer amongst the applicants were aware of the provisions for appeals (1.6%) and penalty that
could be levied on the Designated Officer or the First Appellate Authority (0%).
3. Most came to know about the Act and its features largely from News papers, Government Orders/Displays
and „Word-of-mouth‟
4. Only 142 out of 490 were provided with acknowledgement receipt at the time of acceptance of
applications.
4. Self-declared on-time service delivery by applicants was, however, as high as about 70%. While this was
less than what the MIS reports showed, as these were self-declared reports, these too should be taken with
a lit bit of errors in margin.
5. Amongst the elected representatives only 94 out of 304 respondents were aware of the provisions of the
Act. The proportion rose with rank (Proportionally more Members of a District Panchayat knew about it, than
Heads of Gram Panchayats than Members of Gram panchayats.)
Alarmed at the results the GoMP began to take quick action; some of which were:

20

1. Improve awareness through different means: a Service Delivery Week and using folk songs, and
dance to spread the message.
2. Increase the number of training programmes and the quality of its content
3. Provide provisions for initiating appeals suo moto by the 1st Appellate Officer and Second Appeal
Authority
4. Initiate a process where computerized acknowledgement receipts were to be provided to applicants.
5. On-line applications registration
6. SMS based acknowledgement
7. A regular review at the highest levels.
8. Lack of Appeals even when a few hundreds of services (out of a few million) were not delivered on
time was construed to be a function of lack of awareness.
9. Despite difficulties, induce existing departments to notify more services under the Act, and induce
departments not under the Act to agree to come under its purview and notify some services.

PHASE II – JULY 2011 TO NOVEMBER 2011

FOLLOW-UP ON THE IMPACT STUDY

A. AWARENESS AND TRANSPARENCY
1. Serious and concerted efforts were made by the Public Service management Department to push officials
and elected representatives to take up awareness campaigns. Organzing rallies and press conferences were
suggested. Engaging children in innovative ways and delivering services ina ceremonial manner were taken
up. The appropriate officials were also required to document these seriously. These were again monitored
through the MIS created by the Madhya Pradesh wing of the National Informatics Centre (NIC). More than
20,000 Gram Sabhas were organized during this period and compliance of total coverage was close to 90%.
2. The GoMP decided to declare a week in September as the annual Lok Sewa Week and 25 September as
annual LokSeva Day.
3. A check of the MIS showed that districts participated actively in documenting their awareness campaigns
and in providing valuable feedback from the ground level. A random check of a district – Damoh – revealed
the following. 129 out of 161 Gram panchayats were encouraged to hold Special Gram Sabhas on the issue
of Guarantee of Public Service Delivery. Kits were issued to District Panchayats to display on the walls
during a workshop held for the District Panchayat members on 10th September 2011. Several groups were
trained on the features of the Act and a press conference was held on the same date [10-09-2011] to ensure
that the local press gives the guarantees wide publicity.
4. Locally popular methods were adopted to promote awareness during the Lok Sewa week. The following
pictures from Sehore district [provided by the department] show a glimpse of these efforts.

Local newspapers, too, it appeared, were happy to carry the news of the guarantees during this period.

21

B. IMPROVING EFFICIENCY: INTRODUCTION OF COMPUTERS AT THE FRONT-END SERVICE
DELIVERING CENTRES:

By coordinating with the nine departments (initially), the PSM Department ensured that in a phased manner
the line departments will utilize their own budget to equip their front offices with computers and internet
connectivity. By the end of 2011 they had ensured that at least half of the nearly 313 Blocks of Madhya
Pradesh had been covered. About 50% of the designated officers get connected at the Block level; by end
2012 all to be connected.
In almost all cases, the front offices were mandated to register all applications „on-line‟ in the computers.
This was linked to the respective Designated and Nodal Officers at different levels. Officials were now able to
track the status of applications in a manner that was of help to them: a status picture, plus a dash board that
warned them of delays, and a day-wise status of pending applications.
A snap shot of the status between 1st April 2011 and September 2011 is shown below:

RED: denotes lapsed time limit
AMBER and YELLOW: denote that there is just about enough time
GREEN: denotes that sufficient time is available for disposal of the applications.

An added benefit of the computerization drive was that an SMS-based acknowledgement could be sent to
the applicants as indicated by the photograph which the consultant took in Vidisha district Tehsil Office. A
screen shot of on-line registraion in the same office is also shown below.

22

S. Departm Applicat Applications Disposed Applications Disposed Pending Applications Number
within time limit after time limit is over
No ent ion of
Servic Service Tot Servic Service Tot Beyo Whose Time limit Tot
Receive Incompl
e Applicat al e Applicat al nd will be over al
d ete
deliver ion deliver ion Time Tod In In
Applicati
ed Rejecte ed Rejecte limit ay two Thr afte ons
d d da ee r
ys day thr
s ee
day
s
(1) (2) (3) (4) (5) (6) (7) (8) (9) (10) (11) (12 (13) (14) (15) (16)
)
General
1 201682 195658 1374 197032 888 19 907 3267 0 0 0 0 3267 476
Administration
2 Home 146 86 0 86 0 0 0 27 0 0 3 30 60 0

3 Revenue 437027 429133 542 429675 1703 16 1719 4680 0 0 2 241 4923 710

4 Transport 6915 4775 73 4848 0 0 0 2047 0 0 0 0 2047 20

5 Forest 94 34 0 34 5 1 6 26 2 0 0 4 32 22

6 Energy 131602 123398 2939 126337 597 58 655 3462 28 4 12 20 3526 1084

7 Labour 27877 20811 2581 23392 115 20 135 2837 110 7 91 604 3649 701

Urban
8 Administration 18466 15443 574 16017 23 4 27 1263 113 7 89 645 2117 305
and Development

Rural
9 585 438 18 456 0 0 0 82 0 0 0 40 122 7
Development
10 Tribal Welfare 385 340 19 359 0 0 0 20 1 0 0 4 25 1
11 Social Justice 133144 98665 10273 108938 467 52 519 5197 286 109 257 12564 18413 5274
Food, civil
supplies and
12 68782 61487 1080 62567 263 13 276 3618 167 32 141 1137 5095 844
consumer
Protection
Public health
13 10418 9917 52 9969 19 2 21 398 0 0 0 0 398 30
engineering
Women and child
14 2451 444 1 445 0 0 0 890 1 59 146 753 1849 157
welfare

Total 1039574 960629 19526 980155 4080 185 4265 27814 708 218 741 16042 45523 9631

23

C. INCREASING THE COVERAGE: NUMBER OF SERVICES

In July 2011 the PSM Department intiated a process of inducing departments already covered under the Act
to include and notify more services, while asking other departments if they would like to offer any of their
services to be included under the Act.

A series of discussions with the departments followed.
7 new departments with 18 services joined in to guarantee service delivery, and of the existing 9
departments 5 decided to add on 8 more services.

In all, then, by 24th September 2011 52 services delivered by 16 Departments of the GoMP were covered by
the Act. The additions to the earlier 26 Services and 9 Departments are provided in the Table below.

24

Second Notification: Departments AND Services added under MP Guarantee of Public Service Delivery Act 2010
July 2011
1. Energy Department

1.7 Disposal of Application pertaining to
Permanent Disconnection

a. Zone/Urban Distribution Centre office Zonal/Distribution Centre 30 working days Executive Engineer 7 working days Superintendent Engineer
incharge

b. Rural Areas Distribution Centre 30 working days Executive Engineer 7 working days Superintendent Engineer
incharge

2. Labour Department
Sr No. Services Designation of Designated Defined timelines Designation of Defined timelines for Designation of Second Appellate
Officer for providing the First Appellate disposal of First Authority
2.4 Registration of Construction Workers Rural Areas 30 days Sub Divisional 30 days District Collector
CEO of Jila Panchayat; Officer, Revenue
Urban
:authorised Labour Officer; District Collector
30 days Sub Divisional 30 days
Where no Labour Officer is Officer, Revenue
posted
1.Commissioner of 30 days Collector 30 days Divisional Commissioner
Municipal Corporation

2. CMO of Municipality as 30 days Sub Divisional 30 days District Collector
the case may be Officer, Revenue
2.5 Financial Assistance in case of permanent Rural Areas 30 days Sub Divisional 30 days District Collector
disability caused in construction work CEO of Jila Panchayat; Officer, Revenue
Urban
:authorised Labour Officer; District Collector
30 days Sub Divisional 30 days
Where no Labour Officer is Officer, Revenue
posted
1.Commissioner of Municipal 30 days Collector 30 days Divisional Commissioner
Corporation
2. CMO of Municipality as the 30 days
case may be Sub Divisional 30 days District Collector
Officer, Revenue

25

4. Revenue
Sr No. Services Designation of Designated Defined timelines for Designation of Defined timelines Designation of Second
Officer providing the Services First Appellate for disposal of First Appellate Authority
Officer Appeal
4.6 Compensation for crop damage caused Tehsildar/ 30 days SDO, Revenue 30 days District Collector
by wild animals Additional Tehsildar/
Naib Tehsildar
4.7 No Objection Certificate (NOC) for Nazul Officer 1 month District Collector 15 days Divisional Commissioner
Nazul land
4.8 Solvency Certificate Tehsildar/ Addl. 45 days Sub Divisional 15 days Divisional Commissioner
Tehsildar/Naib Tehsildar- Officer (SDO)
up to Rs.5 lakhs
SDO: up to Rs.25 lakhs 45 days District Collector 15 days Divisional Commissioner
District Collector: more 45 days Divisional 15 days Secretary, Revenue
than Rs.25 lakhs Commissioner Department

5. Urban Administration and Development
Officer Appeal
5.2 Fresh inclusion in BPL (below Poverty SDO Revenue 30 days District Collector 30 days Divisional Commissioner
Line) List

6. General Administration Department
Officer Appeal
6.2 Income Certificate Tehsildar/Additional 3 days SDO 7 days District Collector
Tehsildar/Naib Tehsildar

10. Forest Department
Officer Appeal
10.1 Relief for death caused by wild animals Range Officer 3 days Divisional Forest 15 days Conservator of
Officer/dy Forests/regional director of
director/asst protected area
director of
protected area/
10.2 Relief for harm/injuries caused by wild Range Officer 7 days Divisional Forest 15 days Conservator of
animals Officer/dy Forests/regional director of
director of
protected area/

26

10.3 Relief for damage caused to cattle Range Officer 30 days Divisional Forest 30 days Conservator of
Officer/dy Forests/regional director of
director of
protected area/
10.4 Payments in malik makbuja cases
1 In cases where wood is Divisional Forest Officer 45 days Conservator of 30 days Additional Principal Chief
received in government Forests Conservator of Forests
depot. (Production)
2 In cases of complete Divisional Forest Officer 30 days Conservator of 30 days Additional Principal Chief
recovery of sale value in Forests Conservator of Forests
cases of separate lots. (Production)
10.5 Permits to carry wood 1 Forest Range 3 days Dy. Divisional 15 days Divisional Forest Officer
Officer for Forest Officer
Government
depot
2 Forest Range 10 days D. Divisional 15 days Divisional Forest Officer
Officer for Forest Officer
registered
Dealers/produc
ers
3 Deputy 30 days Divisional Forest 15 days Conservator of Forests
divisional forest Officer
officer for
wood received
from land
owner.

11. Home Department
Officer Appeal
11.1 Copy of the Post Mortem report Inspector-in-charge of the 30 days SDOP/ Suptd. Of 15 days Suptd. Of Police (SP)
Police Station Police (SP)- City
11.2 Copy of the First Information Report Inspector-in-charge of the 1 day SDOP/SP-City 7 days SP
(FIR) Police Station
11.3days Renewal of Arms License before expiry District Magistrate 15 days Divisional 7 days Secretary, Home
date for weapons of non-prohibited Commissioner Department
bore
11.4 Renewal of Arms license after expiry District Magistrate 45 days Divisional 15 days Secretary, Home
date for weapons of non-prohibited Commissioner Department
bore

12. Public Health and Family Welfare Department
Officer Appeal

27

12.1 Sanction from State fund for Financial Chief Medical and Health 10 days Divisional/Joint 15 days Commissioner of Health
Assistance during illness, cases upto 1.0 Officer (CM&HO) Director of Services
lakh (district level) Health
12.2 Disability Certificate Civil Surgeon 15 days Chief Medical 15 days District Collector
and Health
Officer
12.3 Issue of Deen Dayal a) Dist. HQ- 7 days District Collector 15 days Divisional Commissioner
UpadhyayTreatment Scheme- Cards CM&HO
b) Other than Dist. 7 days CM&HO 15 days District Collector
HQ- Block
medical Officer

13. Farmers Welfare and Agriculture Department
Officer Appeal
13.1 Issue of License – Chemicals, Fertilizers, Dy. Director of Agriculture 30 days Divisional Jt. 15 days Director of the Department
Pesticides and Seeds in Dist. Director,
Agriculture
13.2 Renewal of License- Chemicals, Dy. Director of Agriculture 30 days Divisional Jt. 15 days Director of the
Fertilizers, Pesticides, and Seeds in Dist. Director, Department/District
Agriculture Collector

14. Women and Child Development Department
Officer Appeal
14.1 Laadli Lakshmi Scheme Child Development Project 30 days Dist Women and 15 days District Collector
Officer Child
development
Officer

15. Transport Department
Officer Appeal
15.1 Issue of Learner’s License Regional Transport Officer 10 days District Collector 15 days Divisional Commissioner
15.2 Vehicle Fitness Certificate Regional Transport Officer 15 days District Collector 30 days Divisional Commissioner

16. Panchayat Raj and Rural Development Department
Officer Appeal
16.1 Fresh addition of name in the Below Tehsildar/Additional 30 days SDO Revenue 30 days Divisional Commissioner

28

Poverty Line (BPL) List Tehsildar/Naib Tehsildar

29

D. INCREASING EFFECTIVENESS:

A key insight that the PSM Department got by its inward looking analysis was that circulars related to the
delivery of services were in language that was not very clear, sometimes even to the government officers.
Interpretational flexibility led to different ways of functioning.

In an important move, the PSM Department coordinated with all the line departments and set up a series of
meetings. The PSM departments role was to ensure that everyone understood the spirit and letter of the MP
Guarantee of Public Service Delivery Act 2010 and to encourage the concerned stakeholders to come up
with revised circulars that clearly indicated, in unambiguous language, HOW A SERVICE IS TO BE
DEFINED AND DELIVERED.

The results of these long deliberations [between November 2-5, 2011] that includedOfficers of the PSM
Department, the District Managers, hired for coordination by the PSM Department, and for each
service/department 2 Designated Officers, 1 Appellate Authority, and members of the District Administration,
were clearly explicated circulars for each service that is now being brought out as a compendium for ready
reference and use.

E. COMBINING EFFICIENCY AND EFFECTIVENESS:
Realizing the inherent limitations of human and financial resources, as also that of the existing infrastrcture,
and keeping in times with the idea of Public Private Partnerships (PPP), the GoMP mulled over the
possibility of setting up Service Centres of an entirely different nature.

That there existed thousands of Common Service Centres (CSCs) that were promoted under a national
programme was a fact. But the ground reality was that, not only in Madhya Pradesh but also in many other
states, these centres which were expected to work on the principle of pay per service had become non-
functional due to economic infeasibility – the volume of business [both G2C and B2C] some how did not
materialize.

Yet again in a path breaking move, the PSM department through its Deputy Secretary, decided to expand its
sources for getting a good solution. A query was raised in the United Nations Solution Exchange Community
of Practice hosted in India. Based on a few answers that were provided, and having committed to have a
national consultation on accountability and guarantee mechanisms in public service delivery, the GoMP
proposed that Lok Sewa Kendras (Public Service Centres) be initiated on a PPP mode in 400 places in
Madhya Pradesh.

30

A draft of the Request for Proposals (RFP) was placed in the national consultations held in December 2011
and suggestions were elicited.

A revised version of the proposal was put up, and in February 2012 the Cabinet of the GoMP have cleared it
paving the way for a new era in large scale private provision of public services under the Act.

F. A SECOND ROUND OF IMPACT ANALYSIS

A second round of surveys were conducted during the period December 2011 to february 2012 in three
different phases covering different districts and by different agencies.
The salient findings are:
1. Nearly 3,500 respondents including officers were covered in this round of impact assessment.
2. Some features
SL.NO ITEM SURVEY 1 SURVEY 2 SURVEY 3
(COVERING 17 (COVERING 16 (COVERING 20
DISTRICTS) DISTRICTS) DISTRICTS)
1. Gender of Respondents M:71% ; F:29% M:74 ; F: 26% M:61% ; F:39%
2. Percentage Below Poverty Line 40% 48.9% 54%
(BPL)
3. Awareness 34% 70.11% 35%
Awareness on Appeals 22% 58.9% 30%
Awareness of Penalty 7% 35.6% 28%
Awareness of Compensation 4% 5.5% 8%
4. Service Delivery On Time 72% 92.29% 74%
Of which Before time 44% 24.88% 18%
After Time Limit 10% 7.72% 13%
Did Not Remember 18% 7.72% 13%
5. Who Filled the Application
Self 31% 54.72% 28%
Friends/Relatives 25% 30% NA
Touts 21% 10% 6%
6. Number of Visits
1 time 52% 33.6% 14% said 1 Visit
2 times 29% 50.6%
3 times 9% 11.82% 86% said they had to
> 3 times 11% 3.86% make repeat visits

The table indicates that awareness has increased, but not to an extent where a majority, leave alone a
significant majority, are aware. Efficiency levels (service delivery on or before time) are high and higher than
what the first survey indicated, which augurs well for the government.

That a substantive number of applicants rely on friends and relatives to fill application forms could also
possibly be linked to the high number of repeat visits. It is often incomplete forms, not enclosing all relevant
documents, etc. that necessitate recourse to error removal and may probably to multiple visits. This would
need a closer scrutiny.

G: ACCOUNTABILITY:

In a far-reaching move in December 2011 the law was amended to allow the First Appellate Authority to take
suo moto cognizance of delays or denials and authorize him/her to impose penalties. Till date about 100
cases have been taken up, with 49 Designated Officers being fined, the total sum of fines being Rs.175,000/-

5. FINDINGS AND OBSERVATIONS

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