2. Contents Page No
I. Executive Summary 3
2
II. Background 4
III. What is IVRS? 11
IV. The Process of IVRS 13
V. The Situation Before and After 15
VI. Impact of IVRS 17
VII. Conclusion and Recommendation 20
VIII. The Way Ahead for the State 20
IX. Annexure 22
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3. I. Executive Summary
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
3
Day Meal Scheme has proved to be a „tool of decision making in the
hands of the decision-maker‟. This system has been successfully
operationalised 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
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4. accountability and transparency, primarily because data is available
almost immediately. Upon stabilisation 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 4
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.
II. Background
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 of
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5. the Government of India (held in February 2010) with representatives
from the Govt. of India, UNICEF and MDM,UP1, 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 5
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 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:
1
The members were: 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
|Page 5
6. 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
6
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/AIE2centres. 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 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
2
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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7. menu prepared in accordance with this requirement is as follows:
Day of the Menu 7
week
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 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.
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8. 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 8
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
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9. 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:
No school-wise reports were available at either the district or state
9
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
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10. 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
10
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.
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
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11. timing and make reservations, its use in monitoring a scheme on such a
large scale was a new and unique concept. .
III. What is IVRS? 11
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.
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12. 12
This mechanism is illustrated through the diagram below:
OBD
OB
MIS
D Application
& DSS
Information Virtual
through IVR Number(s
through IVR )/ Server
Internet
Acknowledgement
School
Mid Day Meal
Functionaries at
District/ Division /
State levels
- Registration
- Daily Attendance
- Confirmation MIS Reports / Exception
Reports etc of all schools
are available here for
decision making at
different levels
As the diagram illustrates, the server at the call centre is the nodal point
from which information is collected, processed and transmitted to the
relevant website.
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13. 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 13
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.
IV. The Process of IVRS
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.
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14. 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. 14
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)
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
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15. schools within a two-hour time frame, 60 PRI (Primary Rate Interface)3
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 15
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.
V. The Situation Before and After
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
3
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.
|Page 15
16. 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 16
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
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17. eliminates tasks of reimbursing and auditing such telephone
expenses.
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 17
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.
VI. Impact of IVRS
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
|Page 17
18. 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
18
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 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
|Page 18
19. 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.
19
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”.
|Page 19
20. 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.
20
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 the conversion cost incurred,
thereby making it possible to calculate the total expense incurred. This
could then be cross-checked with the fund allocated.
VII. Conclusion and Recommendation
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.
VIII. The Way Ahead for the State
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
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21. 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. 21
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
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22. 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.
22
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23. IX. Annexures 23
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”.
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24. 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:
24
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 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,
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25. 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.
25
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 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”
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26. followed by # (hash) to the automated call.
26
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