Promoting eGovernance : The Smart Way Forward | Famous Books for UPSC Exam (Summary & Tests) PDF Download

 Page 1


RTc Records of Right, Tenancy and c ultivation 
RTI Right to Information
ScA Service centre Agency
SDA State Designated Agency 
SDcs State Data centres
SeMT State e-Governance Mission Teams
SMART Simple, Moral, Accountable, Responsive and T ransparent
SRA Strengthening of Revenue Administration
SROs Sub-Registrars’ Offices
SSc State Services commission (New Zealand)
STQc Standardization Testing and Quality certification 
SWAN State Wide Area Network
TIN Tax Identification Number
UID Unique Identity
ULbs Urban Local bodies
ULR Updating of Land Records
URL Uniform Resource Locator
UTs Union Territories
VFO Virtual Front Office
VLE Village Level Entrepreneur
WAN Wide Area Network
xx
1
INTRODUCTION
1.1 One of the terms of reference of the Second Administrative Reforms commission 
pertains to promoting e-Governance and in particular, to the following aspects of this 
subject:
i. To reduce red-tape, delay and inconveniences through technology 
interventions including the use of modern tools, techniques and instruments 
of e-Governance.
ii. Promote knowledge sharing to realize continuous improvement in the quality 
of governance.
1.2 The “e” in e-Governance stands for ‘electronic’. Thus, e-Governance is basically 
associated with carrying out the functions and achieving the results of governance 
through the utilization of what has today come to be known as IcT (Information and 
c ommunications Technology). The reason why countries around the world are increasingly 
opting for ‘e-Governance’ is that governance per se has become more complex and varied 
in the last few decades and more importantly, citizens’ expectations from government have 
increased manifold. IcT facilitates efficient storing and retrieval of data, instantaneous 
transmission of information, processing information and data faster than the earlier manual 
systems, speeding up governmental processes, taking decisions expeditiously and judiciously, 
increasing transparency and enforcing accountability. It also helps in increasing the reach 
of government – both geographically and demographically. 
1.3 The primary purpose of governance is the welfare of citizens. While one aspect of 
governance relates to safeguarding the legal rights of all citizens, an equally important aspect 
is concerned with ensuring equitable access to public services and the benefits of economic 
growth to all. It is expected that e-Governance would enable the government to discharge 
its functions more effectively. However, this would require the government to change itself 
– its processes, its outlook, laws, rules and regulations and also its way of interacting with 
the citizens. It would also require capacity building within the government and creation 
of general awareness about e-Governance among the citizens. 
Page 2


RTc Records of Right, Tenancy and c ultivation 
RTI Right to Information
ScA Service centre Agency
SDA State Designated Agency 
SDcs State Data centres
SeMT State e-Governance Mission Teams
SMART Simple, Moral, Accountable, Responsive and T ransparent
SRA Strengthening of Revenue Administration
SROs Sub-Registrars’ Offices
SSc State Services commission (New Zealand)
STQc Standardization Testing and Quality certification 
SWAN State Wide Area Network
TIN Tax Identification Number
UID Unique Identity
ULbs Urban Local bodies
ULR Updating of Land Records
URL Uniform Resource Locator
UTs Union Territories
VFO Virtual Front Office
VLE Village Level Entrepreneur
WAN Wide Area Network
xx
1
INTRODUCTION
1.1 One of the terms of reference of the Second Administrative Reforms commission 
pertains to promoting e-Governance and in particular, to the following aspects of this 
subject:
i. To reduce red-tape, delay and inconveniences through technology 
interventions including the use of modern tools, techniques and instruments 
of e-Governance.
ii. Promote knowledge sharing to realize continuous improvement in the quality 
of governance.
1.2 The “e” in e-Governance stands for ‘electronic’. Thus, e-Governance is basically 
associated with carrying out the functions and achieving the results of governance 
through the utilization of what has today come to be known as IcT (Information and 
c ommunications Technology). The reason why countries around the world are increasingly 
opting for ‘e-Governance’ is that governance per se has become more complex and varied 
in the last few decades and more importantly, citizens’ expectations from government have 
increased manifold. IcT facilitates efficient storing and retrieval of data, instantaneous 
transmission of information, processing information and data faster than the earlier manual 
systems, speeding up governmental processes, taking decisions expeditiously and judiciously, 
increasing transparency and enforcing accountability. It also helps in increasing the reach 
of government – both geographically and demographically. 
1.3 The primary purpose of governance is the welfare of citizens. While one aspect of 
governance relates to safeguarding the legal rights of all citizens, an equally important aspect 
is concerned with ensuring equitable access to public services and the benefits of economic 
growth to all. It is expected that e-Governance would enable the government to discharge 
its functions more effectively. However, this would require the government to change itself 
– its processes, its outlook, laws, rules and regulations and also its way of interacting with 
the citizens. It would also require capacity building within the government and creation 
of general awareness about e-Governance among the citizens. 
3
1.4 During the initial stages of introduction of Ic T in governance there was resistance from 
some quarters. Some felt that computerization cannot work in the complex government 
system and that introduction of computers would lead to un-employment. There were 
also serious doubts whether government employees at all levels would be able to handle 
computers. Fortunately all these misgivings have proved wrong. T oday, new software tools 
have enough flexibility, to accommodate the most complex situations. The new technology 
makes the machine human interface very user-friendly. The Information T echnology (IT) and 
Information T echnology Enbled Services (ITES) sectors have created millions of jobs besides 
improving vastly on the services provided by government undertakings like banks, Airlines, 
Railways etc. Thus e-Governance is no longer a far-fetched dream. 
1.5 The c ommission in its various Reports has advocated the need for introducing 
e-Governance tools for reforming governmental processes and bringing elements of 
accountability and transparency along with citizen-centricity. In its First Report, entitled 
‘Right to Information: Master Key to Good Governance’, while discussing suo motu 
disclosures, the commission recommended that “In respect to electronic disclosures, NIC 
should provide a single portal through which disclosures of all public authorities under appropriate 
governments could be accessed, to facilitate easy availability of information” (paragraph 5.4.11.d). 
However, while making this recommendation, the commission was not unaware of the 
ground realities prevalent in the country, especially in the rural areas, which called for a thrust 
towards capacity building and creating adequate infrastructure for taking e-Governance 
to the people. Thus, the commission cautioned that “…there are inherent limitations in 
electronic communication. The vast majority of people will not have access to computers in the 
foreseeable future. Also a large number of small public offices and village panchayats are unlikely 
to be able to use this mode of communication” (paragraph 5.4.2).
1.6 The commission’s Second Report entitled ‘Unlocking Human capital: Entitlements 
and Governance – A case Study’, contained a complete module on ‘Use of Information 
Technology’ in implementation of the National Rural Employment Guarantee Act, 2005. 
Some of the important recommendations made by the commission are quite illustrative 
in the context of ‘e-Governance’ which is the focus of the present Report:
• 	 B l o c k s 	 m u s t 	 b e 	 t h e 	 n o d a l 	 l e v e l s 	 o f 	 g o v e r n m e n t 	 a t 	 w h i c h 	 a l l 	 i n f o r m a t i o n 	 i s 	 e l e c t r o n i c .	
Any information collected in non-electronic form at this or a lower level of 
government must be digitized at block level (paragraph 5.4.8.1.6).
• 	 D a t a 	 f r o m 	 t h e 	 b l o c k s 	 s h o u l d 	 b e 	 a g g r e g a t e d 	 i n 	 c e n t r a l 	 r e p o s i t o r i e s 	 i n 	 e a c h 	 o f 	 t h e 	 s t a t e s . 	 A	
single data centre may be adequate for each state, and transmission to this centre from 
each of the blocks should be enabled. The Union Government should maintain its own 
data centre, aggregating data from each of the state repositories (paragraph 5.4.8.3.3).
• 	 Th e 	 i d e n t i fi c a t i o n 	 o f 	 p a r t i c i p a n t s 	 i n 	 t h e 	 R E G S 	 s h o u l d 	 b e 	 d e v e l o p e d 	 n a t i o n a l l y , 	 i n	
p r e p a r a t i o n 	 f o r 	 w i d e r 	 u s e 	 o f 	 a 	 n a t i o n a l 	 c i t i z e n 	 i d e n t i fi c a t i o n 	 n u m b e r . 	 Th e 	 p o t e n t i a l	
for such identity to be developed congruently with other systems of nationwide 
participation – e.g. elections – should be explored along with appropriate 
representatives from such other arenas as well (paragraph 5.4.8.5.3).
• 	 A 	 G e o g r a p h i c 	 I n f o r m a t i o n 	 S y s t e m 	 ( G I S ) 	 f o r 	 t h e 	 R E G S 	 s h o u l d 	 b e 	 d e v e l o p e d 	 a n d	
information that is developed through aggregation should be presented through 
this system as well. A zoom-able and pan-able interface should allow performance 
to be understood at different levels of administration from the same base data. 
Wherever possible, suo motu disclosures should be in GIS format also, in addition 
to their other means of dissemination (paragraph 5.4.8.7.5).
•	 A 	 few 	 pilot 	 pr ojects 	 in 	 different 	 regions 	 may 	 be 	 taken 	 up 	 in 	 a 	 cluster 	 of 	 villages	
using SMART cards. Such SMART cards should store information about 
the person’s identity (including biometrics) and should have the capacity of 
re c o rd i n g 	 t r a n s a c t i o n s 	 u n d e r 	 N R E G A 	 a n d 	 e v e n 	 a u t h o r i z e 	 p a y m e n t s 	 ( p a r a g r a p h	
5.4.8.9.5). 
1.7 In its Report on ‘c risis Management’, the commission had once again put emphasis 
on the use of ‘Geographical Information System’ tools in order to “integrate spatial data 
such as topography, hydrology, land use, land cover, settlement pattern and built structure as 
well as non-spatial data such as demography, socio-economic conditions and infrastructure in a 
common platform. This should be integrated with satellite and aerospace data as well as data from 
G eogr aphical	 P ositioning	 S ystems	 for	 r eal	 time	 monitoring	 of	 crisis	 situations	 and	 for	 scientific	
assessment of damages” (paragraph 5.3.8c). 
1.8 The c ommission’s Fourth Report entitled ‘Ethics in Governance’ also emphasized 
the use of Information Technology and highlighted the need for concomitant process re-
engineering in the government. Its specific recommendations were as follows:
• 	 E a c h 	 M i n i s t r y / D e p a r t m e n t / O r g a n i s a t i o n 	 o f 	 G o v e r n m e n t 	 s h o u l d 	 d r a w 	 u p 	 a 	 p l a n	
for use of IT to improve governance. In any government process, use of Information 
Technology should be made only after the existing procedures have been thoroughly 
re-engineered (paragraph 6.4.7a).
• 	 Th e 	 M i n i s t r y 	 o f 	 I n f o r m a t i o n 	 T e c h n o l o g y 	 n e e d s 	 t o 	 i d e n t i f y 	 c e r t a i n 	 g o v e r n m e n t a l	
processes and then take up a project of their computerization on a nationwide 
scale (paragraph 6.4.7b).
Introduction Promoting e-Governance – The SMART Way Forward
Page 3


RTc Records of Right, Tenancy and c ultivation 
RTI Right to Information
ScA Service centre Agency
SDA State Designated Agency 
SDcs State Data centres
SeMT State e-Governance Mission Teams
SMART Simple, Moral, Accountable, Responsive and T ransparent
SRA Strengthening of Revenue Administration
SROs Sub-Registrars’ Offices
SSc State Services commission (New Zealand)
STQc Standardization Testing and Quality certification 
SWAN State Wide Area Network
TIN Tax Identification Number
UID Unique Identity
ULbs Urban Local bodies
ULR Updating of Land Records
URL Uniform Resource Locator
UTs Union Territories
VFO Virtual Front Office
VLE Village Level Entrepreneur
WAN Wide Area Network
xx
1
INTRODUCTION
1.1 One of the terms of reference of the Second Administrative Reforms commission 
pertains to promoting e-Governance and in particular, to the following aspects of this 
subject:
i. To reduce red-tape, delay and inconveniences through technology 
interventions including the use of modern tools, techniques and instruments 
of e-Governance.
ii. Promote knowledge sharing to realize continuous improvement in the quality 
of governance.
1.2 The “e” in e-Governance stands for ‘electronic’. Thus, e-Governance is basically 
associated with carrying out the functions and achieving the results of governance 
through the utilization of what has today come to be known as IcT (Information and 
c ommunications Technology). The reason why countries around the world are increasingly 
opting for ‘e-Governance’ is that governance per se has become more complex and varied 
in the last few decades and more importantly, citizens’ expectations from government have 
increased manifold. IcT facilitates efficient storing and retrieval of data, instantaneous 
transmission of information, processing information and data faster than the earlier manual 
systems, speeding up governmental processes, taking decisions expeditiously and judiciously, 
increasing transparency and enforcing accountability. It also helps in increasing the reach 
of government – both geographically and demographically. 
1.3 The primary purpose of governance is the welfare of citizens. While one aspect of 
governance relates to safeguarding the legal rights of all citizens, an equally important aspect 
is concerned with ensuring equitable access to public services and the benefits of economic 
growth to all. It is expected that e-Governance would enable the government to discharge 
its functions more effectively. However, this would require the government to change itself 
– its processes, its outlook, laws, rules and regulations and also its way of interacting with 
the citizens. It would also require capacity building within the government and creation 
of general awareness about e-Governance among the citizens. 
3
1.4 During the initial stages of introduction of Ic T in governance there was resistance from 
some quarters. Some felt that computerization cannot work in the complex government 
system and that introduction of computers would lead to un-employment. There were 
also serious doubts whether government employees at all levels would be able to handle 
computers. Fortunately all these misgivings have proved wrong. T oday, new software tools 
have enough flexibility, to accommodate the most complex situations. The new technology 
makes the machine human interface very user-friendly. The Information T echnology (IT) and 
Information T echnology Enbled Services (ITES) sectors have created millions of jobs besides 
improving vastly on the services provided by government undertakings like banks, Airlines, 
Railways etc. Thus e-Governance is no longer a far-fetched dream. 
1.5 The c ommission in its various Reports has advocated the need for introducing 
e-Governance tools for reforming governmental processes and bringing elements of 
accountability and transparency along with citizen-centricity. In its First Report, entitled 
‘Right to Information: Master Key to Good Governance’, while discussing suo motu 
disclosures, the commission recommended that “In respect to electronic disclosures, NIC 
should provide a single portal through which disclosures of all public authorities under appropriate 
governments could be accessed, to facilitate easy availability of information” (paragraph 5.4.11.d). 
However, while making this recommendation, the commission was not unaware of the 
ground realities prevalent in the country, especially in the rural areas, which called for a thrust 
towards capacity building and creating adequate infrastructure for taking e-Governance 
to the people. Thus, the commission cautioned that “…there are inherent limitations in 
electronic communication. The vast majority of people will not have access to computers in the 
foreseeable future. Also a large number of small public offices and village panchayats are unlikely 
to be able to use this mode of communication” (paragraph 5.4.2).
1.6 The commission’s Second Report entitled ‘Unlocking Human capital: Entitlements 
and Governance – A case Study’, contained a complete module on ‘Use of Information 
Technology’ in implementation of the National Rural Employment Guarantee Act, 2005. 
Some of the important recommendations made by the commission are quite illustrative 
in the context of ‘e-Governance’ which is the focus of the present Report:
• 	 B l o c k s 	 m u s t 	 b e 	 t h e 	 n o d a l 	 l e v e l s 	 o f 	 g o v e r n m e n t 	 a t 	 w h i c h 	 a l l 	 i n f o r m a t i o n 	 i s 	 e l e c t r o n i c .	
Any information collected in non-electronic form at this or a lower level of 
government must be digitized at block level (paragraph 5.4.8.1.6).
• 	 D a t a 	 f r o m 	 t h e 	 b l o c k s 	 s h o u l d 	 b e 	 a g g r e g a t e d 	 i n 	 c e n t r a l 	 r e p o s i t o r i e s 	 i n 	 e a c h 	 o f 	 t h e 	 s t a t e s . 	 A	
single data centre may be adequate for each state, and transmission to this centre from 
each of the blocks should be enabled. The Union Government should maintain its own 
data centre, aggregating data from each of the state repositories (paragraph 5.4.8.3.3).
• 	 Th e 	 i d e n t i fi c a t i o n 	 o f 	 p a r t i c i p a n t s 	 i n 	 t h e 	 R E G S 	 s h o u l d 	 b e 	 d e v e l o p e d 	 n a t i o n a l l y , 	 i n	
p r e p a r a t i o n 	 f o r 	 w i d e r 	 u s e 	 o f 	 a 	 n a t i o n a l 	 c i t i z e n 	 i d e n t i fi c a t i o n 	 n u m b e r . 	 Th e 	 p o t e n t i a l	
for such identity to be developed congruently with other systems of nationwide 
participation – e.g. elections – should be explored along with appropriate 
representatives from such other arenas as well (paragraph 5.4.8.5.3).
• 	 A 	 G e o g r a p h i c 	 I n f o r m a t i o n 	 S y s t e m 	 ( G I S ) 	 f o r 	 t h e 	 R E G S 	 s h o u l d 	 b e 	 d e v e l o p e d 	 a n d	
information that is developed through aggregation should be presented through 
this system as well. A zoom-able and pan-able interface should allow performance 
to be understood at different levels of administration from the same base data. 
Wherever possible, suo motu disclosures should be in GIS format also, in addition 
to their other means of dissemination (paragraph 5.4.8.7.5).
•	 A 	 few 	 pilot 	 pr ojects 	 in 	 different 	 regions 	 may 	 be 	 taken 	 up 	 in 	 a 	 cluster 	 of 	 villages	
using SMART cards. Such SMART cards should store information about 
the person’s identity (including biometrics) and should have the capacity of 
re c o rd i n g 	 t r a n s a c t i o n s 	 u n d e r 	 N R E G A 	 a n d 	 e v e n 	 a u t h o r i z e 	 p a y m e n t s 	 ( p a r a g r a p h	
5.4.8.9.5). 
1.7 In its Report on ‘c risis Management’, the commission had once again put emphasis 
on the use of ‘Geographical Information System’ tools in order to “integrate spatial data 
such as topography, hydrology, land use, land cover, settlement pattern and built structure as 
well as non-spatial data such as demography, socio-economic conditions and infrastructure in a 
common platform. This should be integrated with satellite and aerospace data as well as data from 
G eogr aphical	 P ositioning	 S ystems	 for	 r eal	 time	 monitoring	 of	 crisis	 situations	 and	 for	 scientific	
assessment of damages” (paragraph 5.3.8c). 
1.8 The c ommission’s Fourth Report entitled ‘Ethics in Governance’ also emphasized 
the use of Information Technology and highlighted the need for concomitant process re-
engineering in the government. Its specific recommendations were as follows:
• 	 E a c h 	 M i n i s t r y / D e p a r t m e n t / O r g a n i s a t i o n 	 o f 	 G o v e r n m e n t 	 s h o u l d 	 d r a w 	 u p 	 a 	 p l a n	
for use of IT to improve governance. In any government process, use of Information 
Technology should be made only after the existing procedures have been thoroughly 
re-engineered (paragraph 6.4.7a).
• 	 Th e 	 M i n i s t r y 	 o f 	 I n f o r m a t i o n 	 T e c h n o l o g y 	 n e e d s 	 t o 	 i d e n t i f y 	 c e r t a i n 	 g o v e r n m e n t a l	
processes and then take up a project of their computerization on a nationwide 
scale (paragraph 6.4.7b).
Introduction Promoting e-Governance – The SMART Way Forward
2
1.4 During the initial stages of introduction of Ic T in governance there was resistance from 
some quarters. Some felt that computerization cannot work in the complex government 
system and that introduction of computers would lead to un-employment. There were 
also serious doubts whether government employees at all levels would be able to handle 
computers. Fortunately all these misgivings have proved wrong. T oday, new software tools 
have enough flexibility, to accommodate the most complex situations. The new technology 
makes the machine human interface very user-friendly. The Information T echnology (IT) and 
Information T echnology Enbled Services (ITES) sectors have created millions of jobs besides 
improving vastly on the services provided by government undertakings like banks, Airlines, 
Railways etc. Thus e-Governance is no longer a far-fetched dream. 
1.5 The c ommission in its various Reports has advocated the need for introducing 
e-Governance tools for reforming governmental processes and bringing elements of 
accountability and transparency along with citizen-centricity. In its First Report, entitled 
‘Right to Information: Master Key to Good Governance’, while discussing suo motu 
disclosures, the commission recommended that “In respect to electronic disclosures, NIC 
should provide a single portal through which disclosures of all public authorities under appropriate 
governments could be accessed, to facilitate easy availability of information” (paragraph 5.4.11.d). 
However, while making this recommendation, the commission was not unaware of the 
ground realities prevalent in the country, especially in the rural areas, which called for a thrust 
towards capacity building and creating adequate infrastructure for taking e-Governance 
to the people. Thus, the commission cautioned that “…there are inherent limitations in 
electronic communication. The vast majority of people will not have access to computers in the 
foreseeable future. Also a large number of small public offices and village panchayats are unlikely 
to be able to use this mode of communication” (paragraph 5.4.2).
1.6 The commission’s Second Report entitled ‘Unlocking Human capital: Entitlements 
and Governance – A case Study’, contained a complete module on ‘Use of Information 
Technology’ in implementation of the National Rural Employment Guarantee Act, 2005. 
Some of the important recommendations made by the commission are quite illustrative 
in the context of ‘e-Governance’ which is the focus of the present Report:
• 	 B l o c k s 	 m u s t 	 b e 	 t h e 	 n o d a l 	 l e v e l s 	 o f 	 g o v e r n m e n t 	 a t 	 w h i c h 	 a l l 	 i n f o r m a t i o n 	 i s 	 e l e c t r o n i c .	
Any information collected in non-electronic form at this or a lower level of 
government must be digitized at block level (paragraph 5.4.8.1.6).
• 	 D a t a 	 f r o m 	 t h e 	 b l o c k s 	 s h o u l d 	 b e 	 a g g r e g a t e d 	 i n 	 c e n t r a l 	 r e p o s i t o r i e s 	 i n 	 e a c h 	 o f 	 t h e 	 s t a t e s . 	 A	
single data centre may be adequate for each state, and transmission to this centre from 
each of the blocks should be enabled. The Union Government should maintain its own 
data centre, aggregating data from each of the state repositories (paragraph 5.4.8.3.3).
• 	 Th e 	 i d e n t i fi c a t i o n 	 o f 	 p a r t i c i p a n t s 	 i n 	 t h e 	 R E G S 	 s h o u l d 	 b e 	 d e v e l o p e d 	 n a t i o n a l l y , 	 i n	
p r e p a r a t i o n 	 f o r 	 w i d e r 	 u s e 	 o f 	 a 	 n a t i o n a l 	 c i t i z e n 	 i d e n t i fi c a t i o n 	 n u m b e r . 	 Th e 	 p o t e n t i a l	
for such identity to be developed congruently with other systems of nationwide 
participation – e.g. elections – should be explored along with appropriate 
representatives from such other arenas as well (paragraph 5.4.8.5.3).
• 	 A 	 G e o g r a p h i c 	 I n f o r m a t i o n 	 S y s t e m 	 ( G I S ) 	 f o r 	 t h e 	 R E G S 	 s h o u l d 	 b e 	 d e v e l o p e d 	 a n d	
information that is developed through aggregation should be presented through 
this system as well. A zoom-able and pan-able interface should allow performance 
to be understood at different levels of administration from the same base data. 
Wherever possible, suo motu disclosures should be in GIS format also, in addition 
to their other means of dissemination (paragraph 5.4.8.7.5).
•	 A 	 few 	 pilot 	 pr ojects 	 in 	 different 	 regions 	 may 	 be 	 taken 	 up 	 in 	 a 	 cluster 	 of 	 villages	
using SMART cards. Such SMART cards should store information about 
the person’s identity (including biometrics) and should have the capacity of 
re c o rd i n g 	 t r a n s a c t i o n s 	 u n d e r 	 N R E G A 	 a n d 	 e v e n 	 a u t h o r i z e 	 p a y m e n t s 	 ( p a r a g r a p h	
5.4.8.9.5). 
1.7 In its Report on ‘c risis Management’, the commission had once again put emphasis 
on the use of ‘Geographical Information System’ tools in order to “integrate spatial data 
such as topography, hydrology, land use, land cover, settlement pattern and built structure as 
well as non-spatial data such as demography, socio-economic conditions and infrastructure in a 
common platform. This should be integrated with satellite and aerospace data as well as data from 
G eogr aphical	 P ositioning	 S ystems	 for	 r eal	 time	 monitoring	 of	 crisis	 situations	 and	 for	 scientific	
assessment of damages” (paragraph 5.3.8c). 
1.8 The c ommission’s Fourth Report entitled ‘Ethics in Governance’ also emphasized 
the use of Information Technology and highlighted the need for concomitant process re-
engineering in the government. Its specific recommendations were as follows:
• 	 E a c h 	 M i n i s t r y / D e p a r t m e n t / O r g a n i s a t i o n 	 o f 	 G o v e r n m e n t 	 s h o u l d 	 d r a w 	 u p 	 a 	 p l a n	
for use of IT to improve governance. In any government process, use of Information 
Technology should be made only after the existing procedures have been thoroughly 
re-engineered (paragraph 6.4.7a).
• 	 Th e 	 M i n i s t r y 	 o f 	 I n f o r m a t i o n 	 T e c h n o l o g y 	 n e e d s 	 t o 	 i d e n t i f y 	 c e r t a i n 	 g o v e r n m e n t a l	
processes and then take up a project of their computerization on a nationwide 
scale (paragraph 6.4.7b).
Introduction Promoting e-Governance – The SMART Way Forward
Page 4


RTc Records of Right, Tenancy and c ultivation 
RTI Right to Information
ScA Service centre Agency
SDA State Designated Agency 
SDcs State Data centres
SeMT State e-Governance Mission Teams
SMART Simple, Moral, Accountable, Responsive and T ransparent
SRA Strengthening of Revenue Administration
SROs Sub-Registrars’ Offices
SSc State Services commission (New Zealand)
STQc Standardization Testing and Quality certification 
SWAN State Wide Area Network
TIN Tax Identification Number
UID Unique Identity
ULbs Urban Local bodies
ULR Updating of Land Records
URL Uniform Resource Locator
UTs Union Territories
VFO Virtual Front Office
VLE Village Level Entrepreneur
WAN Wide Area Network
xx
1
INTRODUCTION
1.1 One of the terms of reference of the Second Administrative Reforms commission 
pertains to promoting e-Governance and in particular, to the following aspects of this 
subject:
i. To reduce red-tape, delay and inconveniences through technology 
interventions including the use of modern tools, techniques and instruments 
of e-Governance.
ii. Promote knowledge sharing to realize continuous improvement in the quality 
of governance.
1.2 The “e” in e-Governance stands for ‘electronic’. Thus, e-Governance is basically 
associated with carrying out the functions and achieving the results of governance 
through the utilization of what has today come to be known as IcT (Information and 
c ommunications Technology). The reason why countries around the world are increasingly 
opting for ‘e-Governance’ is that governance per se has become more complex and varied 
in the last few decades and more importantly, citizens’ expectations from government have 
increased manifold. IcT facilitates efficient storing and retrieval of data, instantaneous 
transmission of information, processing information and data faster than the earlier manual 
systems, speeding up governmental processes, taking decisions expeditiously and judiciously, 
increasing transparency and enforcing accountability. It also helps in increasing the reach 
of government – both geographically and demographically. 
1.3 The primary purpose of governance is the welfare of citizens. While one aspect of 
governance relates to safeguarding the legal rights of all citizens, an equally important aspect 
is concerned with ensuring equitable access to public services and the benefits of economic 
growth to all. It is expected that e-Governance would enable the government to discharge 
its functions more effectively. However, this would require the government to change itself 
– its processes, its outlook, laws, rules and regulations and also its way of interacting with 
the citizens. It would also require capacity building within the government and creation 
of general awareness about e-Governance among the citizens. 
3
1.4 During the initial stages of introduction of Ic T in governance there was resistance from 
some quarters. Some felt that computerization cannot work in the complex government 
system and that introduction of computers would lead to un-employment. There were 
also serious doubts whether government employees at all levels would be able to handle 
computers. Fortunately all these misgivings have proved wrong. T oday, new software tools 
have enough flexibility, to accommodate the most complex situations. The new technology 
makes the machine human interface very user-friendly. The Information T echnology (IT) and 
Information T echnology Enbled Services (ITES) sectors have created millions of jobs besides 
improving vastly on the services provided by government undertakings like banks, Airlines, 
Railways etc. Thus e-Governance is no longer a far-fetched dream. 
1.5 The c ommission in its various Reports has advocated the need for introducing 
e-Governance tools for reforming governmental processes and bringing elements of 
accountability and transparency along with citizen-centricity. In its First Report, entitled 
‘Right to Information: Master Key to Good Governance’, while discussing suo motu 
disclosures, the commission recommended that “In respect to electronic disclosures, NIC 
should provide a single portal through which disclosures of all public authorities under appropriate 
governments could be accessed, to facilitate easy availability of information” (paragraph 5.4.11.d). 
However, while making this recommendation, the commission was not unaware of the 
ground realities prevalent in the country, especially in the rural areas, which called for a thrust 
towards capacity building and creating adequate infrastructure for taking e-Governance 
to the people. Thus, the commission cautioned that “…there are inherent limitations in 
electronic communication. The vast majority of people will not have access to computers in the 
foreseeable future. Also a large number of small public offices and village panchayats are unlikely 
to be able to use this mode of communication” (paragraph 5.4.2).
1.6 The commission’s Second Report entitled ‘Unlocking Human capital: Entitlements 
and Governance – A case Study’, contained a complete module on ‘Use of Information 
Technology’ in implementation of the National Rural Employment Guarantee Act, 2005. 
Some of the important recommendations made by the commission are quite illustrative 
in the context of ‘e-Governance’ which is the focus of the present Report:
• 	 B l o c k s 	 m u s t 	 b e 	 t h e 	 n o d a l 	 l e v e l s 	 o f 	 g o v e r n m e n t 	 a t 	 w h i c h 	 a l l 	 i n f o r m a t i o n 	 i s 	 e l e c t r o n i c .	
Any information collected in non-electronic form at this or a lower level of 
government must be digitized at block level (paragraph 5.4.8.1.6).
• 	 D a t a 	 f r o m 	 t h e 	 b l o c k s 	 s h o u l d 	 b e 	 a g g r e g a t e d 	 i n 	 c e n t r a l 	 r e p o s i t o r i e s 	 i n 	 e a c h 	 o f 	 t h e 	 s t a t e s . 	 A	
single data centre may be adequate for each state, and transmission to this centre from 
each of the blocks should be enabled. The Union Government should maintain its own 
data centre, aggregating data from each of the state repositories (paragraph 5.4.8.3.3).
• 	 Th e 	 i d e n t i fi c a t i o n 	 o f 	 p a r t i c i p a n t s 	 i n 	 t h e 	 R E G S 	 s h o u l d 	 b e 	 d e v e l o p e d 	 n a t i o n a l l y , 	 i n	
p r e p a r a t i o n 	 f o r 	 w i d e r 	 u s e 	 o f 	 a 	 n a t i o n a l 	 c i t i z e n 	 i d e n t i fi c a t i o n 	 n u m b e r . 	 Th e 	 p o t e n t i a l	
for such identity to be developed congruently with other systems of nationwide 
participation – e.g. elections – should be explored along with appropriate 
representatives from such other arenas as well (paragraph 5.4.8.5.3).
• 	 A 	 G e o g r a p h i c 	 I n f o r m a t i o n 	 S y s t e m 	 ( G I S ) 	 f o r 	 t h e 	 R E G S 	 s h o u l d 	 b e 	 d e v e l o p e d 	 a n d	
information that is developed through aggregation should be presented through 
this system as well. A zoom-able and pan-able interface should allow performance 
to be understood at different levels of administration from the same base data. 
Wherever possible, suo motu disclosures should be in GIS format also, in addition 
to their other means of dissemination (paragraph 5.4.8.7.5).
•	 A 	 few 	 pilot 	 pr ojects 	 in 	 different 	 regions 	 may 	 be 	 taken 	 up 	 in 	 a 	 cluster 	 of 	 villages	
using SMART cards. Such SMART cards should store information about 
the person’s identity (including biometrics) and should have the capacity of 
re c o rd i n g 	 t r a n s a c t i o n s 	 u n d e r 	 N R E G A 	 a n d 	 e v e n 	 a u t h o r i z e 	 p a y m e n t s 	 ( p a r a g r a p h	
5.4.8.9.5). 
1.7 In its Report on ‘c risis Management’, the commission had once again put emphasis 
on the use of ‘Geographical Information System’ tools in order to “integrate spatial data 
such as topography, hydrology, land use, land cover, settlement pattern and built structure as 
well as non-spatial data such as demography, socio-economic conditions and infrastructure in a 
common platform. This should be integrated with satellite and aerospace data as well as data from 
G eogr aphical	 P ositioning	 S ystems	 for	 r eal	 time	 monitoring	 of	 crisis	 situations	 and	 for	 scientific	
assessment of damages” (paragraph 5.3.8c). 
1.8 The c ommission’s Fourth Report entitled ‘Ethics in Governance’ also emphasized 
the use of Information Technology and highlighted the need for concomitant process re-
engineering in the government. Its specific recommendations were as follows:
• 	 E a c h 	 M i n i s t r y / D e p a r t m e n t / O r g a n i s a t i o n 	 o f 	 G o v e r n m e n t 	 s h o u l d 	 d r a w 	 u p 	 a 	 p l a n	
for use of IT to improve governance. In any government process, use of Information 
Technology should be made only after the existing procedures have been thoroughly 
re-engineered (paragraph 6.4.7a).
• 	 Th e 	 M i n i s t r y 	 o f 	 I n f o r m a t i o n 	 T e c h n o l o g y 	 n e e d s 	 t o 	 i d e n t i f y 	 c e r t a i n 	 g o v e r n m e n t a l	
processes and then take up a project of their computerization on a nationwide 
scale (paragraph 6.4.7b).
Introduction Promoting e-Governance – The SMART Way Forward
2
1.4 During the initial stages of introduction of Ic T in governance there was resistance from 
some quarters. Some felt that computerization cannot work in the complex government 
system and that introduction of computers would lead to un-employment. There were 
also serious doubts whether government employees at all levels would be able to handle 
computers. Fortunately all these misgivings have proved wrong. T oday, new software tools 
have enough flexibility, to accommodate the most complex situations. The new technology 
makes the machine human interface very user-friendly. The Information T echnology (IT) and 
Information T echnology Enbled Services (ITES) sectors have created millions of jobs besides 
improving vastly on the services provided by government undertakings like banks, Airlines, 
Railways etc. Thus e-Governance is no longer a far-fetched dream. 
1.5 The c ommission in its various Reports has advocated the need for introducing 
e-Governance tools for reforming governmental processes and bringing elements of 
accountability and transparency along with citizen-centricity. In its First Report, entitled 
‘Right to Information: Master Key to Good Governance’, while discussing suo motu 
disclosures, the commission recommended that “In respect to electronic disclosures, NIC 
should provide a single portal through which disclosures of all public authorities under appropriate 
governments could be accessed, to facilitate easy availability of information” (paragraph 5.4.11.d). 
However, while making this recommendation, the commission was not unaware of the 
ground realities prevalent in the country, especially in the rural areas, which called for a thrust 
towards capacity building and creating adequate infrastructure for taking e-Governance 
to the people. Thus, the commission cautioned that “…there are inherent limitations in 
electronic communication. The vast majority of people will not have access to computers in the 
foreseeable future. Also a large number of small public offices and village panchayats are unlikely 
to be able to use this mode of communication” (paragraph 5.4.2).
1.6 The commission’s Second Report entitled ‘Unlocking Human capital: Entitlements 
and Governance – A case Study’, contained a complete module on ‘Use of Information 
Technology’ in implementation of the National Rural Employment Guarantee Act, 2005. 
Some of the important recommendations made by the commission are quite illustrative 
in the context of ‘e-Governance’ which is the focus of the present Report:
• 	 B l o c k s 	 m u s t 	 b e 	 t h e 	 n o d a l 	 l e v e l s 	 o f 	 g o v e r n m e n t 	 a t 	 w h i c h 	 a l l 	 i n f o r m a t i o n 	 i s 	 e l e c t r o n i c .	
Any information collected in non-electronic form at this or a lower level of 
government must be digitized at block level (paragraph 5.4.8.1.6).
• 	 D a t a 	 f r o m 	 t h e 	 b l o c k s 	 s h o u l d 	 b e 	 a g g r e g a t e d 	 i n 	 c e n t r a l 	 r e p o s i t o r i e s 	 i n 	 e a c h 	 o f 	 t h e 	 s t a t e s . 	 A	
single data centre may be adequate for each state, and transmission to this centre from 
each of the blocks should be enabled. The Union Government should maintain its own 
data centre, aggregating data from each of the state repositories (paragraph 5.4.8.3.3).
• 	 Th e 	 i d e n t i fi c a t i o n 	 o f 	 p a r t i c i p a n t s 	 i n 	 t h e 	 R E G S 	 s h o u l d 	 b e 	 d e v e l o p e d 	 n a t i o n a l l y , 	 i n	
p r e p a r a t i o n 	 f o r 	 w i d e r 	 u s e 	 o f 	 a 	 n a t i o n a l 	 c i t i z e n 	 i d e n t i fi c a t i o n 	 n u m b e r . 	 Th e 	 p o t e n t i a l	
for such identity to be developed congruently with other systems of nationwide 
participation – e.g. elections – should be explored along with appropriate 
representatives from such other arenas as well (paragraph 5.4.8.5.3).
• 	 A 	 G e o g r a p h i c 	 I n f o r m a t i o n 	 S y s t e m 	 ( G I S ) 	 f o r 	 t h e 	 R E G S 	 s h o u l d 	 b e 	 d e v e l o p e d 	 a n d	
information that is developed through aggregation should be presented through 
this system as well. A zoom-able and pan-able interface should allow performance 
to be understood at different levels of administration from the same base data. 
Wherever possible, suo motu disclosures should be in GIS format also, in addition 
to their other means of dissemination (paragraph 5.4.8.7.5).
•	 A 	 few 	 pilot 	 pr ojects 	 in 	 different 	 regions 	 may 	 be 	 taken 	 up 	 in 	 a 	 cluster 	 of 	 villages	
using SMART cards. Such SMART cards should store information about 
the person’s identity (including biometrics) and should have the capacity of 
re c o rd i n g 	 t r a n s a c t i o n s 	 u n d e r 	 N R E G A 	 a n d 	 e v e n 	 a u t h o r i z e 	 p a y m e n t s 	 ( p a r a g r a p h	
5.4.8.9.5). 
1.7 In its Report on ‘c risis Management’, the commission had once again put emphasis 
on the use of ‘Geographical Information System’ tools in order to “integrate spatial data 
such as topography, hydrology, land use, land cover, settlement pattern and built structure as 
well as non-spatial data such as demography, socio-economic conditions and infrastructure in a 
common platform. This should be integrated with satellite and aerospace data as well as data from 
G eogr aphical	 P ositioning	 S ystems	 for	 r eal	 time	 monitoring	 of	 crisis	 situations	 and	 for	 scientific	
assessment of damages” (paragraph 5.3.8c). 
1.8 The c ommission’s Fourth Report entitled ‘Ethics in Governance’ also emphasized 
the use of Information Technology and highlighted the need for concomitant process re-
engineering in the government. Its specific recommendations were as follows:
• 	 E a c h 	 M i n i s t r y / D e p a r t m e n t / O r g a n i s a t i o n 	 o f 	 G o v e r n m e n t 	 s h o u l d 	 d r a w 	 u p 	 a 	 p l a n	
for use of IT to improve governance. In any government process, use of Information 
Technology should be made only after the existing procedures have been thoroughly 
re-engineered (paragraph 6.4.7a).
• 	 Th e 	 M i n i s t r y 	 o f 	 I n f o r m a t i o n 	 T e c h n o l o g y 	 n e e d s 	 t o 	 i d e n t i f y 	 c e r t a i n 	 g o v e r n m e n t a l	
processes and then take up a project of their computerization on a nationwide 
scale (paragraph 6.4.7b).
Introduction Promoting e-Governance – The SMART Way Forward
• 	 F o r 	 c o m p u t e r i z a t i o n 	 t o 	 b e 	 s u c c e s s f u l , 	 c o m p u t e r 	 k n o w l e d g e 	 o f 	 d e p a r t m e n t a l 	 o ffi c e r s	
n e e d s 	 t o 	 b e 	 u p g r a d e d . 	 S i m i l a r l y , 	 t h e 	 N I C 	 n e e d s 	 t o 	 b e 	 t r a i n e d 	 i n 	 d e p a r t m e n t 	 s p e c i fi c	
activities, so that they could appreciate each other’s view point and also ensure 
that technology providers understand the anatomy of each department (paragraph 
6.4.7c).
• 	 A l l 	 o ffi c e s 	 h a v i n g 	 l a r g e 	 p u b l i c 	 i n t e r f a c e 	 s h o u l d 	 h a v e 	 a n 	 o n l i n e 	 c o m p l a i n t 	 t r a c k i n g	
system. If possible, this task of complaint tracking should be outsourced (paragraph 
6.10.2a).
• 	 A 	 n a t i o n a l 	 d a t a b a s e 	 c o n t a i n i n g 	 t h e 	 d e t a i l s 	 o f 	 a l l 	 c o r r u p t i o n 	 c a s e s 	 a t 	 a l l 	 l e v e l s 	 s h o u l d	
b e 	 c re a t e d . 	 Th i s 	 d a t a b a s e 	 s h o u l d 	 b e 	 i n 	 t h e 	 p u b l i c 	 d o m a i n . 	 I d e n t i fi e d 	 a u t h o r i t i e s	
should be made responsible for updating the database regularly (paragraph 
6.16.2).
1.9 In its Fifth Report entitled ‘Public Order’, the commission had emphasized the use of 
technology in making the registration of FIRs hassle free. It also suggested that technology 
should be used to improve the accessibility of Police Stations to the public.
1.10 The c ommission had further occasion to discuss the use of Information and 
communications Technology (IcT) in its Sixth Report on ‘Local Governance’ with a view 
to strengthening the institutional structures and service delivery mechanisms with reference 
to the third tier of government. It was of the view that ‘Information and Communication 
Technology provides tools which could be utilized by the local governments for simplifying 
cumbersome processes, reducing contact between the cutting edge functionaries and the 
citizens, enhancing accountability and transparency and providing single window service 
delivery for a variety of services. The Commission would discuss such issues in detail in its 
Report on e-Governance’ (paragraph 3.10.1.1). Having said this, however, the commission 
did look into some specific uses of e-Governance tools in matters related to panchayats and 
urban local bodies. Some of the recommendations made in this Report are as follows: 
• 	 Infor mation 	 and 	 Communication 	 T echnolog y 	 should 	 be 	 utiliz ed 	 b y 	 the 	 local	
g o v e r n m e n t s 	 i n 	 p r o c e s s 	 s i m p l i fi c a t i o n , 	 e n h a n c i n g 	 t r a n s p a re n c y 	 a n d 	 a c c o u n t a b i l i t y	
and providing service delivery of services through single window (paragraph 
3.10.1.2 a).
• 	 L o c a l 	 g o v e r n m e n t s 	 s h o u l d 	 b e c o m e 	 o n e 	 p o i n t 	 s e r v i c e 	 c e n t re s 	 f o r 	 p r o v i d i n g 	 v a r i o u s	
web based and satellite based services. This would however require capacity building 
in the local governments (paragraph 3.10.2.8 b).
5
• 	 S t a t e 	 G o v e r n m e n t s 	 s h o u l d 	 m a k e 	 u s e 	 o f 	 t h e 	 s o f t w a r e 	 o n 	 “ f u n d 	 t r a n s f e r 	 t o 	 P a n c h a y a t s ”	
prepared by the Union Ministry of Panchayati Raj for speedy transfer of funds 
(paragraph 4.3.7.5d).
• 	 S teps 	 should 	 be 	 taken 	 to 	 set 	 up 	 I nfor mation 	 and 	 Communication 	 T echnolog y 	 (ICT)	
and Space Technology enabled Resource Centres at the Village and Intermediate 
Panchayat levels for local resource mapping and generation of local information 
base. These Resource Centres should also be used for documenting local traditional 
knowledge and heritage (paragraphs 4.5.5.6 a&b).
• 	 M u n i c i p a l 	 b o d i e s 	 s h o u l d 	 h a v e 	 a 	 p e r i o d i c a l l y 	 u p d a t e d 	 d a t a b a s e 	 o f 	 i t s 	 p r o p e r t i e s .	
IT tools like GIS should be used for this purpose. This database should be in the 
public domain (paragraph 5.3.8.7a).
•	 P ayment 	 of 	 water 	 charges 	 in 	 urban 	 areas 	 should 	 be 	 made 	 hassle-free 	 thr ough 	 use	
of Information Technology (5.4.3.2.8e).
• 	 A n 	 e x h a u s t i v e 	 s u r v e y 	 t o 	 i d e n t i f y 	 t h e 	 u r b a n 	 p o o r 	 s h o u l d 	 b e 	 c a r r i e d 	 o u t 	 w i t h i n 	 o n e	
year . 	 The 	 urban 	 poor 	 so 	 identified 	 may 	 be 	 issued 	 multi-utility 	 identity 	 car ds 	 for	
availing 	 of 	 benefits 	 under 	 all 	 pover ty 	 alleviation 	 progammes 	 (par agr aph 	 5.6.2.3).
1.11 While dealing with illegal immigration into the North East in its Seventh Report 
entitled ‘c apacity building for c onflict Resolution’, the c ommission drew attention 
towards having a multi-purpose national identity card for citizens. It was of the view that 
“The Multi-purpose National Identity Card (MNIC) will also function as a necessary 
instrument for e-Governance. It will provide a user-friendly interface between the citizen 
and the government and will function as a deterrent for future illegal immigration” 
(paragraph 12.6.6.1). However, the commission noted that there were several Union and 
State Government agencies which issue similar identity cards. Accordingly, it recommended 
that “the MNIC project needs to be taken up on a priority basis. Since there are several 
Union Government and State Government agencies which issue similar identity cards, 
it would be necessary to achieve convergence amongst all such systems so that the MNIC 
b e c o m e s 	 t h e 	 b a s i c 	 d o c u m e n t 	 f o r 	 i d e n t i fi c a t i o n 	 o f 	 a 	 p e r s o n 	 a n d 	 l e n d s 	 i t s e l f 	 t o 	 b e 	 u s e d 	 a s 	 a	
multi-purpose individual card. Priority should be given to areas having international 
borders, for implementation of this Project” (paragraph 12.6.6.3).
1.12 In its earlier Reports, the commission has examined some aspects of e-Governance 
while dealing with specific issues of governance. In the present Report, e-Governance is 
examined as the core issue in improving governance as a whole. The Report discusses the 
conceptual framework of e-Governance in c hapter 2 and then looks into some international 
Introduction Promoting e-Governance – The SMART Way Forward
Page 5


RTc Records of Right, Tenancy and c ultivation 
RTI Right to Information
ScA Service centre Agency
SDA State Designated Agency 
SDcs State Data centres
SeMT State e-Governance Mission Teams
SMART Simple, Moral, Accountable, Responsive and T ransparent
SRA Strengthening of Revenue Administration
SROs Sub-Registrars’ Offices
SSc State Services commission (New Zealand)
STQc Standardization Testing and Quality certification 
SWAN State Wide Area Network
TIN Tax Identification Number
UID Unique Identity
ULbs Urban Local bodies
ULR Updating of Land Records
URL Uniform Resource Locator
UTs Union Territories
VFO Virtual Front Office
VLE Village Level Entrepreneur
WAN Wide Area Network
xx
1
INTRODUCTION
1.1 One of the terms of reference of the Second Administrative Reforms commission 
pertains to promoting e-Governance and in particular, to the following aspects of this 
subject:
i. To reduce red-tape, delay and inconveniences through technology 
interventions including the use of modern tools, techniques and instruments 
of e-Governance.
ii. Promote knowledge sharing to realize continuous improvement in the quality 
of governance.
1.2 The “e” in e-Governance stands for ‘electronic’. Thus, e-Governance is basically 
associated with carrying out the functions and achieving the results of governance 
through the utilization of what has today come to be known as IcT (Information and 
c ommunications Technology). The reason why countries around the world are increasingly 
opting for ‘e-Governance’ is that governance per se has become more complex and varied 
in the last few decades and more importantly, citizens’ expectations from government have 
increased manifold. IcT facilitates efficient storing and retrieval of data, instantaneous 
transmission of information, processing information and data faster than the earlier manual 
systems, speeding up governmental processes, taking decisions expeditiously and judiciously, 
increasing transparency and enforcing accountability. It also helps in increasing the reach 
of government – both geographically and demographically. 
1.3 The primary purpose of governance is the welfare of citizens. While one aspect of 
governance relates to safeguarding the legal rights of all citizens, an equally important aspect 
is concerned with ensuring equitable access to public services and the benefits of economic 
growth to all. It is expected that e-Governance would enable the government to discharge 
its functions more effectively. However, this would require the government to change itself 
– its processes, its outlook, laws, rules and regulations and also its way of interacting with 
the citizens. It would also require capacity building within the government and creation 
of general awareness about e-Governance among the citizens. 
3
1.4 During the initial stages of introduction of Ic T in governance there was resistance from 
some quarters. Some felt that computerization cannot work in the complex government 
system and that introduction of computers would lead to un-employment. There were 
also serious doubts whether government employees at all levels would be able to handle 
computers. Fortunately all these misgivings have proved wrong. T oday, new software tools 
have enough flexibility, to accommodate the most complex situations. The new technology 
makes the machine human interface very user-friendly. The Information T echnology (IT) and 
Information T echnology Enbled Services (ITES) sectors have created millions of jobs besides 
improving vastly on the services provided by government undertakings like banks, Airlines, 
Railways etc. Thus e-Governance is no longer a far-fetched dream. 
1.5 The c ommission in its various Reports has advocated the need for introducing 
e-Governance tools for reforming governmental processes and bringing elements of 
accountability and transparency along with citizen-centricity. In its First Report, entitled 
‘Right to Information: Master Key to Good Governance’, while discussing suo motu 
disclosures, the commission recommended that “In respect to electronic disclosures, NIC 
should provide a single portal through which disclosures of all public authorities under appropriate 
governments could be accessed, to facilitate easy availability of information” (paragraph 5.4.11.d). 
However, while making this recommendation, the commission was not unaware of the 
ground realities prevalent in the country, especially in the rural areas, which called for a thrust 
towards capacity building and creating adequate infrastructure for taking e-Governance 
to the people. Thus, the commission cautioned that “…there are inherent limitations in 
electronic communication. The vast majority of people will not have access to computers in the 
foreseeable future. Also a large number of small public offices and village panchayats are unlikely 
to be able to use this mode of communication” (paragraph 5.4.2).
1.6 The commission’s Second Report entitled ‘Unlocking Human capital: Entitlements 
and Governance – A case Study’, contained a complete module on ‘Use of Information 
Technology’ in implementation of the National Rural Employment Guarantee Act, 2005. 
Some of the important recommendations made by the commission are quite illustrative 
in the context of ‘e-Governance’ which is the focus of the present Report:
• 	 B l o c k s 	 m u s t 	 b e 	 t h e 	 n o d a l 	 l e v e l s 	 o f 	 g o v e r n m e n t 	 a t 	 w h i c h 	 a l l 	 i n f o r m a t i o n 	 i s 	 e l e c t r o n i c .	
Any information collected in non-electronic form at this or a lower level of 
government must be digitized at block level (paragraph 5.4.8.1.6).
• 	 D a t a 	 f r o m 	 t h e 	 b l o c k s 	 s h o u l d 	 b e 	 a g g r e g a t e d 	 i n 	 c e n t r a l 	 r e p o s i t o r i e s 	 i n 	 e a c h 	 o f 	 t h e 	 s t a t e s . 	 A	
single data centre may be adequate for each state, and transmission to this centre from 
each of the blocks should be enabled. The Union Government should maintain its own 
data centre, aggregating data from each of the state repositories (paragraph 5.4.8.3.3).
• 	 Th e 	 i d e n t i fi c a t i o n 	 o f 	 p a r t i c i p a n t s 	 i n 	 t h e 	 R E G S 	 s h o u l d 	 b e 	 d e v e l o p e d 	 n a t i o n a l l y , 	 i n	
p r e p a r a t i o n 	 f o r 	 w i d e r 	 u s e 	 o f 	 a 	 n a t i o n a l 	 c i t i z e n 	 i d e n t i fi c a t i o n 	 n u m b e r . 	 Th e 	 p o t e n t i a l	
for such identity to be developed congruently with other systems of nationwide 
participation – e.g. elections – should be explored along with appropriate 
representatives from such other arenas as well (paragraph 5.4.8.5.3).
• 	 A 	 G e o g r a p h i c 	 I n f o r m a t i o n 	 S y s t e m 	 ( G I S ) 	 f o r 	 t h e 	 R E G S 	 s h o u l d 	 b e 	 d e v e l o p e d 	 a n d	
information that is developed through aggregation should be presented through 
this system as well. A zoom-able and pan-able interface should allow performance 
to be understood at different levels of administration from the same base data. 
Wherever possible, suo motu disclosures should be in GIS format also, in addition 
to their other means of dissemination (paragraph 5.4.8.7.5).
•	 A 	 few 	 pilot 	 pr ojects 	 in 	 different 	 regions 	 may 	 be 	 taken 	 up 	 in 	 a 	 cluster 	 of 	 villages	
using SMART cards. Such SMART cards should store information about 
the person’s identity (including biometrics) and should have the capacity of 
re c o rd i n g 	 t r a n s a c t i o n s 	 u n d e r 	 N R E G A 	 a n d 	 e v e n 	 a u t h o r i z e 	 p a y m e n t s 	 ( p a r a g r a p h	
5.4.8.9.5). 
1.7 In its Report on ‘c risis Management’, the commission had once again put emphasis 
on the use of ‘Geographical Information System’ tools in order to “integrate spatial data 
such as topography, hydrology, land use, land cover, settlement pattern and built structure as 
well as non-spatial data such as demography, socio-economic conditions and infrastructure in a 
common platform. This should be integrated with satellite and aerospace data as well as data from 
G eogr aphical	 P ositioning	 S ystems	 for	 r eal	 time	 monitoring	 of	 crisis	 situations	 and	 for	 scientific	
assessment of damages” (paragraph 5.3.8c). 
1.8 The c ommission’s Fourth Report entitled ‘Ethics in Governance’ also emphasized 
the use of Information Technology and highlighted the need for concomitant process re-
engineering in the government. Its specific recommendations were as follows:
• 	 E a c h 	 M i n i s t r y / D e p a r t m e n t / O r g a n i s a t i o n 	 o f 	 G o v e r n m e n t 	 s h o u l d 	 d r a w 	 u p 	 a 	 p l a n	
for use of IT to improve governance. In any government process, use of Information 
Technology should be made only after the existing procedures have been thoroughly 
re-engineered (paragraph 6.4.7a).
• 	 Th e 	 M i n i s t r y 	 o f 	 I n f o r m a t i o n 	 T e c h n o l o g y 	 n e e d s 	 t o 	 i d e n t i f y 	 c e r t a i n 	 g o v e r n m e n t a l	
processes and then take up a project of their computerization on a nationwide 
scale (paragraph 6.4.7b).
Introduction Promoting e-Governance – The SMART Way Forward
2
1.4 During the initial stages of introduction of Ic T in governance there was resistance from 
some quarters. Some felt that computerization cannot work in the complex government 
system and that introduction of computers would lead to un-employment. There were 
also serious doubts whether government employees at all levels would be able to handle 
computers. Fortunately all these misgivings have proved wrong. T oday, new software tools 
have enough flexibility, to accommodate the most complex situations. The new technology 
makes the machine human interface very user-friendly. The Information T echnology (IT) and 
Information T echnology Enbled Services (ITES) sectors have created millions of jobs besides 
improving vastly on the services provided by government undertakings like banks, Airlines, 
Railways etc. Thus e-Governance is no longer a far-fetched dream. 
1.5 The c ommission in its various Reports has advocated the need for introducing 
e-Governance tools for reforming governmental processes and bringing elements of 
accountability and transparency along with citizen-centricity. In its First Report, entitled 
‘Right to Information: Master Key to Good Governance’, while discussing suo motu 
disclosures, the commission recommended that “In respect to electronic disclosures, NIC 
should provide a single portal through which disclosures of all public authorities under appropriate 
governments could be accessed, to facilitate easy availability of information” (paragraph 5.4.11.d). 
However, while making this recommendation, the commission was not unaware of the 
ground realities prevalent in the country, especially in the rural areas, which called for a thrust 
towards capacity building and creating adequate infrastructure for taking e-Governance 
to the people. Thus, the commission cautioned that “…there are inherent limitations in 
electronic communication. The vast majority of people will not have access to computers in the 
foreseeable future. Also a large number of small public offices and village panchayats are unlikely 
to be able to use this mode of communication” (paragraph 5.4.2).
1.6 The commission’s Second Report entitled ‘Unlocking Human capital: Entitlements 
and Governance – A case Study’, contained a complete module on ‘Use of Information 
Technology’ in implementation of the National Rural Employment Guarantee Act, 2005. 
Some of the important recommendations made by the commission are quite illustrative 
in the context of ‘e-Governance’ which is the focus of the present Report:
• 	 B l o c k s 	 m u s t 	 b e 	 t h e 	 n o d a l 	 l e v e l s 	 o f 	 g o v e r n m e n t 	 a t 	 w h i c h 	 a l l 	 i n f o r m a t i o n 	 i s 	 e l e c t r o n i c .	
Any information collected in non-electronic form at this or a lower level of 
government must be digitized at block level (paragraph 5.4.8.1.6).
• 	 D a t a 	 f r o m 	 t h e 	 b l o c k s 	 s h o u l d 	 b e 	 a g g r e g a t e d 	 i n 	 c e n t r a l 	 r e p o s i t o r i e s 	 i n 	 e a c h 	 o f 	 t h e 	 s t a t e s . 	 A	
single data centre may be adequate for each state, and transmission to this centre from 
each of the blocks should be enabled. The Union Government should maintain its own 
data centre, aggregating data from each of the state repositories (paragraph 5.4.8.3.3).
• 	 Th e 	 i d e n t i fi c a t i o n 	 o f 	 p a r t i c i p a n t s 	 i n 	 t h e 	 R E G S 	 s h o u l d 	 b e 	 d e v e l o p e d 	 n a t i o n a l l y , 	 i n	
p r e p a r a t i o n 	 f o r 	 w i d e r 	 u s e 	 o f 	 a 	 n a t i o n a l 	 c i t i z e n 	 i d e n t i fi c a t i o n 	 n u m b e r . 	 Th e 	 p o t e n t i a l	
for such identity to be developed congruently with other systems of nationwide 
participation – e.g. elections – should be explored along with appropriate 
representatives from such other arenas as well (paragraph 5.4.8.5.3).
• 	 A 	 G e o g r a p h i c 	 I n f o r m a t i o n 	 S y s t e m 	 ( G I S ) 	 f o r 	 t h e 	 R E G S 	 s h o u l d 	 b e 	 d e v e l o p e d 	 a n d	
information that is developed through aggregation should be presented through 
this system as well. A zoom-able and pan-able interface should allow performance 
to be understood at different levels of administration from the same base data. 
Wherever possible, suo motu disclosures should be in GIS format also, in addition 
to their other means of dissemination (paragraph 5.4.8.7.5).
•	 A 	 few 	 pilot 	 pr ojects 	 in 	 different 	 regions 	 may 	 be 	 taken 	 up 	 in 	 a 	 cluster 	 of 	 villages	
using SMART cards. Such SMART cards should store information about 
the person’s identity (including biometrics) and should have the capacity of 
re c o rd i n g 	 t r a n s a c t i o n s 	 u n d e r 	 N R E G A 	 a n d 	 e v e n 	 a u t h o r i z e 	 p a y m e n t s 	 ( p a r a g r a p h	
5.4.8.9.5). 
1.7 In its Report on ‘c risis Management’, the commission had once again put emphasis 
on the use of ‘Geographical Information System’ tools in order to “integrate spatial data 
such as topography, hydrology, land use, land cover, settlement pattern and built structure as 
well as non-spatial data such as demography, socio-economic conditions and infrastructure in a 
common platform. This should be integrated with satellite and aerospace data as well as data from 
G eogr aphical	 P ositioning	 S ystems	 for	 r eal	 time	 monitoring	 of	 crisis	 situations	 and	 for	 scientific	
assessment of damages” (paragraph 5.3.8c). 
1.8 The c ommission’s Fourth Report entitled ‘Ethics in Governance’ also emphasized 
the use of Information Technology and highlighted the need for concomitant process re-
engineering in the government. Its specific recommendations were as follows:
• 	 E a c h 	 M i n i s t r y / D e p a r t m e n t / O r g a n i s a t i o n 	 o f 	 G o v e r n m e n t 	 s h o u l d 	 d r a w 	 u p 	 a 	 p l a n	
for use of IT to improve governance. In any government process, use of Information 
Technology should be made only after the existing procedures have been thoroughly 
re-engineered (paragraph 6.4.7a).
• 	 Th e 	 M i n i s t r y 	 o f 	 I n f o r m a t i o n 	 T e c h n o l o g y 	 n e e d s 	 t o 	 i d e n t i f y 	 c e r t a i n 	 g o v e r n m e n t a l	
processes and then take up a project of their computerization on a nationwide 
scale (paragraph 6.4.7b).
Introduction Promoting e-Governance – The SMART Way Forward
• 	 F o r 	 c o m p u t e r i z a t i o n 	 t o 	 b e 	 s u c c e s s f u l , 	 c o m p u t e r 	 k n o w l e d g e 	 o f 	 d e p a r t m e n t a l 	 o ffi c e r s	
n e e d s 	 t o 	 b e 	 u p g r a d e d . 	 S i m i l a r l y , 	 t h e 	 N I C 	 n e e d s 	 t o 	 b e 	 t r a i n e d 	 i n 	 d e p a r t m e n t 	 s p e c i fi c	
activities, so that they could appreciate each other’s view point and also ensure 
that technology providers understand the anatomy of each department (paragraph 
6.4.7c).
• 	 A l l 	 o ffi c e s 	 h a v i n g 	 l a r g e 	 p u b l i c 	 i n t e r f a c e 	 s h o u l d 	 h a v e 	 a n 	 o n l i n e 	 c o m p l a i n t 	 t r a c k i n g	
system. If possible, this task of complaint tracking should be outsourced (paragraph 
6.10.2a).
• 	 A 	 n a t i o n a l 	 d a t a b a s e 	 c o n t a i n i n g 	 t h e 	 d e t a i l s 	 o f 	 a l l 	 c o r r u p t i o n 	 c a s e s 	 a t 	 a l l 	 l e v e l s 	 s h o u l d	
b e 	 c re a t e d . 	 Th i s 	 d a t a b a s e 	 s h o u l d 	 b e 	 i n 	 t h e 	 p u b l i c 	 d o m a i n . 	 I d e n t i fi e d 	 a u t h o r i t i e s	
should be made responsible for updating the database regularly (paragraph 
6.16.2).
1.9 In its Fifth Report entitled ‘Public Order’, the commission had emphasized the use of 
technology in making the registration of FIRs hassle free. It also suggested that technology 
should be used to improve the accessibility of Police Stations to the public.
1.10 The c ommission had further occasion to discuss the use of Information and 
communications Technology (IcT) in its Sixth Report on ‘Local Governance’ with a view 
to strengthening the institutional structures and service delivery mechanisms with reference 
to the third tier of government. It was of the view that ‘Information and Communication 
Technology provides tools which could be utilized by the local governments for simplifying 
cumbersome processes, reducing contact between the cutting edge functionaries and the 
citizens, enhancing accountability and transparency and providing single window service 
delivery for a variety of services. The Commission would discuss such issues in detail in its 
Report on e-Governance’ (paragraph 3.10.1.1). Having said this, however, the commission 
did look into some specific uses of e-Governance tools in matters related to panchayats and 
urban local bodies. Some of the recommendations made in this Report are as follows: 
• 	 Infor mation 	 and 	 Communication 	 T echnolog y 	 should 	 be 	 utiliz ed 	 b y 	 the 	 local	
g o v e r n m e n t s 	 i n 	 p r o c e s s 	 s i m p l i fi c a t i o n , 	 e n h a n c i n g 	 t r a n s p a re n c y 	 a n d 	 a c c o u n t a b i l i t y	
and providing service delivery of services through single window (paragraph 
3.10.1.2 a).
• 	 L o c a l 	 g o v e r n m e n t s 	 s h o u l d 	 b e c o m e 	 o n e 	 p o i n t 	 s e r v i c e 	 c e n t re s 	 f o r 	 p r o v i d i n g 	 v a r i o u s	
web based and satellite based services. This would however require capacity building 
in the local governments (paragraph 3.10.2.8 b).
5
• 	 S t a t e 	 G o v e r n m e n t s 	 s h o u l d 	 m a k e 	 u s e 	 o f 	 t h e 	 s o f t w a r e 	 o n 	 “ f u n d 	 t r a n s f e r 	 t o 	 P a n c h a y a t s ”	
prepared by the Union Ministry of Panchayati Raj for speedy transfer of funds 
(paragraph 4.3.7.5d).
• 	 S teps 	 should 	 be 	 taken 	 to 	 set 	 up 	 I nfor mation 	 and 	 Communication 	 T echnolog y 	 (ICT)	
and Space Technology enabled Resource Centres at the Village and Intermediate 
Panchayat levels for local resource mapping and generation of local information 
base. These Resource Centres should also be used for documenting local traditional 
knowledge and heritage (paragraphs 4.5.5.6 a&b).
• 	 M u n i c i p a l 	 b o d i e s 	 s h o u l d 	 h a v e 	 a 	 p e r i o d i c a l l y 	 u p d a t e d 	 d a t a b a s e 	 o f 	 i t s 	 p r o p e r t i e s .	
IT tools like GIS should be used for this purpose. This database should be in the 
public domain (paragraph 5.3.8.7a).
•	 P ayment 	 of 	 water 	 charges 	 in 	 urban 	 areas 	 should 	 be 	 made 	 hassle-free 	 thr ough 	 use	
of Information Technology (5.4.3.2.8e).
• 	 A n 	 e x h a u s t i v e 	 s u r v e y 	 t o 	 i d e n t i f y 	 t h e 	 u r b a n 	 p o o r 	 s h o u l d 	 b e 	 c a r r i e d 	 o u t 	 w i t h i n 	 o n e	
year . 	 The 	 urban 	 poor 	 so 	 identified 	 may 	 be 	 issued 	 multi-utility 	 identity 	 car ds 	 for	
availing 	 of 	 benefits 	 under 	 all 	 pover ty 	 alleviation 	 progammes 	 (par agr aph 	 5.6.2.3).
1.11 While dealing with illegal immigration into the North East in its Seventh Report 
entitled ‘c apacity building for c onflict Resolution’, the c ommission drew attention 
towards having a multi-purpose national identity card for citizens. It was of the view that 
“The Multi-purpose National Identity Card (MNIC) will also function as a necessary 
instrument for e-Governance. It will provide a user-friendly interface between the citizen 
and the government and will function as a deterrent for future illegal immigration” 
(paragraph 12.6.6.1). However, the commission noted that there were several Union and 
State Government agencies which issue similar identity cards. Accordingly, it recommended 
that “the MNIC project needs to be taken up on a priority basis. Since there are several 
Union Government and State Government agencies which issue similar identity cards, 
it would be necessary to achieve convergence amongst all such systems so that the MNIC 
b e c o m e s 	 t h e 	 b a s i c 	 d o c u m e n t 	 f o r 	 i d e n t i fi c a t i o n 	 o f 	 a 	 p e r s o n 	 a n d 	 l e n d s 	 i t s e l f 	 t o 	 b e 	 u s e d 	 a s 	 a	
multi-purpose individual card. Priority should be given to areas having international 
borders, for implementation of this Project” (paragraph 12.6.6.3).
1.12 In its earlier Reports, the commission has examined some aspects of e-Governance 
while dealing with specific issues of governance. In the present Report, e-Governance is 
examined as the core issue in improving governance as a whole. The Report discusses the 
conceptual framework of e-Governance in c hapter 2 and then looks into some international 
Introduction Promoting e-Governance – The SMART Way Forward
• 	 F o r 	 c o m p u t e r i z a t i o n 	 t o 	 b e 	 s u c c e s s f u l , 	 c o m p u t e r 	 k n o w l e d g e 	 o f 	 d e p a r t m e n t a l 	 o ffi c e r s	
n e e d s 	 t o 	 b e 	 u p g r a d e d . 	 S i m i l a r l y , 	 t h e 	 N I C 	 n e e d s 	 t o 	 b e 	 t r a i n e d 	 i n 	 d e p a r t m e n t 	 s p e c i fi c	
activities, so that they could appreciate each other’s view point and also ensure 
that technology providers understand the anatomy of each department (paragraph 
6.4.7c).
• 	 A l l 	 o ffi c e s 	 h a v i n g 	 l a r g e 	 p u b l i c 	 i n t e r f a c e 	 s h o u l d 	 h a v e 	 a n 	 o n l i n e 	 c o m p l a i n t 	 t r a c k i n g	
system. If possible, this task of complaint tracking should be outsourced (paragraph 
6.10.2a).
• 	 A 	 n a t i o n a l 	 d a t a b a s e 	 c o n t a i n i n g 	 t h e 	 d e t a i l s 	 o f 	 a l l 	 c o r r u p t i o n 	 c a s e s 	 a t 	 a l l 	 l e v e l s 	 s h o u l d	
b e 	 c re a t e d . 	 Th i s 	 d a t a b a s e 	 s h o u l d 	 b e 	 i n 	 t h e 	 p u b l i c 	 d o m a i n . 	 I d e n t i fi e d 	 a u t h o r i t i e s	
should be made responsible for updating the database regularly (paragraph 
6.16.2).
1.9 In its Fifth Report entitled ‘Public Order’, the commission had emphasized the use of 
technology in making the registration of FIRs hassle free. It also suggested that technology 
should be used to improve the accessibility of Police Stations to the public.
1.10 The c ommission had further occasion to discuss the use of Information and 
communications Technology (IcT) in its Sixth Report on ‘Local Governance’ with a view 
to strengthening the institutional structures and service delivery mechanisms with reference 
to the third tier of government. It was of the view that ‘Information and Communication 
Technology provides tools which could be utilized by the local governments for simplifying 
cumbersome processes, reducing contact between the cutting edge functionaries and the 
citizens, enhancing accountability and transparency and providing single window service 
delivery for a variety of services. The Commission would discuss such issues in detail in its 
Report on e-Governance’ (paragraph 3.10.1.1). Having said this, however, the commission 
did look into some specific uses of e-Governance tools in matters related to panchayats and 
urban local bodies. Some of the recommendations made in this Report are as follows: 
• 	 Infor mation 	 and 	 Communication 	 T echnolog y 	 should 	 be 	 utiliz ed 	 b y 	 the 	 local	
g o v e r n m e n t s 	 i n 	 p r o c e s s 	 s i m p l i fi c a t i o n , 	 e n h a n c i n g 	 t r a n s p a re n c y 	 a n d 	 a c c o u n t a b i l i t y	
and providing service delivery of services through single window (paragraph 
3.10.1.2 a).
• 	 L o c a l 	 g o v e r n m e n t s 	 s h o u l d 	 b e c o m e 	 o n e 	 p o i n t 	 s e r v i c e 	 c e n t re s 	 f o r 	 p r o v i d i n g 	 v a r i o u s	
web based and satellite based services. This would however require capacity building 
in the local governments (paragraph 3.10.2.8 b).
4
• 	 S t a t e 	 G o v e r n m e n t s 	 s h o u l d 	 m a k e 	 u s e 	 o f 	 t h e 	 s o f t w a r e 	 o n 	 “ f u n d 	 t r a n s f e r 	 t o 	 P a n c h a y a t s ”	
prepared by the Union Ministry of Panchayati Raj for speedy transfer of funds 
(paragraph 4.3.7.5d).
• 	 S teps 	 should 	 be 	 taken 	 to 	 set 	 up 	 I nfor mation 	 and 	 Communication 	 T echnolog y 	 (ICT)	
and Space Technology enabled Resource Centres at the Village and Intermediate 
Panchayat levels for local resource mapping and generation of local information 
base. These Resource Centres should also be used for documenting local traditional 
knowledge and heritage (paragraphs 4.5.5.6 a&b).
• 	 M u n i c i p a l 	 b o d i e s 	 s h o u l d 	 h a v e 	 a 	 p e r i o d i c a l l y 	 u p d a t e d 	 d a t a b a s e 	 o f 	 i t s 	 p r o p e r t i e s .	
IT tools like GIS should be used for this purpose. This database should be in the 
public domain (paragraph 5.3.8.7a).
•	 P ayment 	 of 	 water 	 charges 	 in 	 urban 	 areas 	 should 	 be 	 made 	 hassle-free 	 thr ough 	 use	
of Information Technology (5.4.3.2.8e).
• 	 A n 	 e x h a u s t i v e 	 s u r v e y 	 t o 	 i d e n t i f y 	 t h e 	 u r b a n 	 p o o r 	 s h o u l d 	 b e 	 c a r r i e d 	 o u t 	 w i t h i n 	 o n e	
year . 	 The 	 urban 	 poor 	 so 	 identified 	 may 	 be 	 issued 	 multi-utility 	 identity 	 car ds 	 for	
availing 	 of 	 benefits 	 under 	 all 	 pover ty 	 alleviation 	 progammes 	 (par agr aph 	 5.6.2.3).
1.11 While dealing with illegal immigration into the North East in its Seventh Report 
entitled ‘c apacity building for c onflict Resolution’, the c ommission drew attention 
towards having a multi-purpose national identity card for citizens. It was of the view that 
“The Multi-purpose National Identity Card (MNIC) will also function as a necessary 
instrument for e-Governance. It will provide a user-friendly interface between the citizen 
and the government and will function as a deterrent for future illegal immigration” 
(paragraph 12.6.6.1). However, the commission noted that there were several Union and 
State Government agencies which issue similar identity cards. Accordingly, it recommended 
that “the MNIC project needs to be taken up on a priority basis. Since there are several 
Union Government and State Government agencies which issue similar identity cards, 
it would be necessary to achieve convergence amongst all such systems so that the MNIC 
b e c o m e s 	 t h e 	 b a s i c 	 d o c u m e n t 	 f o r 	 i d e n t i fi c a t i o n 	 o f 	 a 	 p e r s o n 	 a n d 	 l e n d s 	 i t s e l f 	 t o 	 b e 	 u s e d 	 a s 	 a	
multi-purpose individual card. Priority should be given to areas having international 
borders, for implementation of this Project” (paragraph 12.6.6.3).
1.12 In its earlier Reports, the commission has examined some aspects of e-Governance 
while dealing with specific issues of governance. In the present Report, e-Governance is 
examined as the core issue in improving governance as a whole. The Report discusses the 
conceptual framework of e-Governance in c hapter 2 and then looks into some international 
Introduction Promoting e-Governance – The SMART Way Forward