E-governance drive gets a babu beating

Ashish Sinha

New Delhi, July 27, 2009

An ambitious government plan to revolutionise the trundling pen-pushing procedures of the Indian bureaucracy, by aligning it with an e-enabled computerfriendly regime, is facing opposition from within. The "Central Secretariat Manual of e-Office Procedure", the first draft of which was circulated recently by the department of administrative reforms and public grievances (DARPG), is aimed at bringing higher efficiency, transparency and accountability among government officials. However, computer- unfriendly Indian officials wary of e-enabled changes in the working environment are opposing the move citing concerns over privacy, legality and lack of computer training. The existing manual on office procedure lays down in great detail how a central government office should function, right from the point at which a file is created till a decision is taken at the highest echelons of the government. Now, in line with the government"s thrust on e-governance, the DARPG"s new "electronic" version of the draft manual incorporates changes in the system so that a "modern office environment" can be created. Steps have been taken to improve the core spirit of the previous manual by "incorporating procedures to support electronic environment and introducing transformational opportunities after due deliberation," reads the objective of the draft, prepared by National Institute of Smart Government (NISG), Hyderabad, and PricewaterhouseCoopers. The draft makes far- reaching proposals. It suggests that chatting on the Net between on an issue can be a time-saving way of arriving at a decision and should be recognised as a means of "official communication". It also says that an exchange of SMSes between officers after sending a file from one office to another over the electronic system should be recognised as a way of acknowledging that the communication has been duly dispatched and received. But the seemingly radical move"though similar steps are already a commonplace in Indian businesses"involves computer literacy. The bureaucracy"s well-known resistance to change and "fear" of the digital world are key factors that are acting as roadblocks in the way of introducing the e-enabled system. Privately, senior government officials are candid about their reasons for resisting the new move. "I am not ready to look at a computer screen from 9 am to 5 pm every day. There are the issues of eyesight and legality. How do you sign a file? How do you incorporate changes? At present, several drafts are made and discarded. I do not understand how you can do that on a computer," said a senior bureaucrat speaking on the condition of anonymity. A joint secretary in the government said, "I have gone through it (the "Central Secretariat Manual of e-Office Procedure"). It reads like a dream manual. Even if partially adopted, it will not only save time but bring about accountability, efficiency and transparency. But, to suddenly change the way we have been working is a huge challenge." Another official said "the most difficult part" for the bureaucracy, which is comfortable with the paper filing system, is to learn computer and Internet usage. Aware that officials would oppose the draft manual of e-office procedure, the government has said it will do what it takes to support the changeover to e-governance. It is ready, for instance, to provide as many computers as an office needs. Under the rules, government departments are expected to spend 5 per cent of their budget on information technology, including the purchase of computers and allied systems. The e-manual draft document takes pains to address other concerns raised by the bureaucrats from the "old school". It says how a file should be created and moved. The originating department should send the file in a digital format to another department. The receiving office should then create a "shadow e-file" at its end and this document would then be moved to different sections and officers for their opinions. Before the document is sent back to the originating department, only the final result of this process would be recorded on the e-file by the officer concerned. Assigning an e-number to the file so that it becomes an instantly retrievable record is the task of the "Dak" section. "The department will open subject-wise e-files each year in which such routine notes will be kept. The inter-departmental note recorded on the e-file of the originating department will bear the subject e-file number to facilitate storage and retrieval for future reference," says the document. Since government departments already have a huge volume of existing physical records, the manual proposes that when a department switches over to the e-office system, the existing physical files will have to be scanned and digitised. It proposes that while all current/live files may be scanned and digitised, semi-current/nonlive files can be preserved only on a need basis. "All closed physical files which contain decisions of longer lasting value from the angle of running the department may also be scanned/ digitised. All important treaties/agreements etc may also be scanned digitised," it says. Some of this language may be obscure for government officials and could make the move to the new modern system more difficult than it appears. To begin with, government officials are under no obligation to dump the existing filing system. Some government departments, however, had adopted egovernance earlier. These are departments that have a direct interface with the public--like issuing various types of licences, collecting taxes, issuing passports, public grievance registries, those responsible for land record management and ticketing systems. Yet, age-old habits of officials in most departments have acted to discourage the shift to an e-enabled environment. "I know some secretary-level officers whose personal assistants place printouts of emails on their tables every morning. To make the manual successful, it has to be made mandatory in a time-bound manner. Computers must not be used as stylish typewriters," said a senior officer posted at Planning Commission. Courtesy: Mail Today