Understanding Government Processes, Service Quality & GPR

1. Understanding Government Processes, Service Quality & GPR

2. Agenda • Government Processes • Defining Service Quality • Exercise on identifying Service Quality Components • GPR & e-Governance • e-Governance Project Life Cycle & Role of GPR • Overview and approach to GPR

3. Understanding ‘Quality’ in Government Services WHEN A CITIZEN RECEIVES A PASSPORT AS A ‘SERVICE’, HE/SHE CHECKS: The answer is NO` Information is correct or not? Name & Photo are correct Personal information like sex, date of birth, address etc are correct The passport is stamped / signed and is valid Physical passport is as expected Not torn or damaged Does not have pages missing / has correct number of pages Suppose all of the above are correct, does that mean that the “SERVICE QUALITY” parameters for the passport have been met?

4. So what else is important?… The entire Passport Issuance Process as seen by the citizen Time Cost Customer Experience • What if • Citizen waits for hours in queue (despite having an appointment) • Receives the passport six weeks after dispatch • The police verification is delayed • Citizen has to come multiple times to log in application • Citizen needs to use an agent to get hassle-free service • Citizen is asked to pay extra money to get it processed fast • Citizen faces rude behavior by the Security guards / counter staff • Citizen does not get correct information from helpline/inquiry counter • Counter accepts incomplete form and rejects it later • Counter does not accept documents defined in the requirement checklist (e.g. letter from Army Officer) • The passport is sent to wrong address / person

5. So what else is important?… The entire Passport Issuance Process as seen by the citizen Time Service Quality comprises of the physical Product, the Time taken to deliver it, the Cost of getting the service, and Customer Experience or Service Delivery Cost Customer Experience • What if • Citizen waits for hours in queue (despite having an appointment) • Receives the passport six weeks after dispatch • The police verification is delayed • Citizen has to come multiple times to log in application • Citizen needs to use an agent to get hassle-free service • Citizen is asked to pay extra money to get it processed fast • Citizen faces rude behavior by the Security guards / counter staff • Citizen does not get correct information from helpline/inquiry counter • Counter accepts incomplete form and rejects it later • Counter does not accept documents defined in the requirement checklist (e.g. letter from Army Officer) • The passport is sent to wrong address / person

6. Our customers are the only judge of whether we are a Quality organization or not! • This means • Our customers decide what the specifications / standards of Quality What does quality mean? • Service Quality is not • A luxury … a flavor of the month • Just meeting our own standards • Quick fixes which are short term and without any hard work • We need to focus upon • Reducing our Total costs by getting things ‘First Time Right’, every time • Avoiding waste by eliminating errors • Doing only the right things • Things which meet the customers’ needs, and • That add value not cost!

7. Key attributes of Service Quality in Government • Time • taken for completion of service by the citizen/business • Taken for delivery of service by the Government • Cost • incurred in receiving the service by the citizen/business • Incurred by the government in delivery of service • Complexity (illustrative) • Number of forms to be filled, amount of information to be provided, number of offices to be approached…..by the citizen/business • Number of employees, number of approvals, number of verifications/validations to be performed by government • Transparency • Knowledge on process for delivery of service, delivery timelines, status of service request to citizen and business….

8. Individual Exercise (Y5) • Think of the e-Gov project you are involved with / involved in currently. • List down the challenges – difficulties faced – by you as an individual in the department. (at least 15 or more of them) • Classify them under these categories • Technology – any issues with technical area • Resources – availability of money, material, men etc • Processes – related to the way of doing things – work flow related • Could you overcome these? • How did you over come these? • What kind of help could have made this change better for you?

9. Role of IT in GPR/Service Quality Improvement Illustrative

10. Service Quality impacts all Stakeholders … need to focus on it from the point of CEO Customer Value For Money • Challenges in current environment • Citizens demanding better service delivery • Increasing penalties for failure Owner Employee Respect Return On Investment CITIZEN, EMPLOYEE, OWNER (CEO) – Model of Quality

11. Traditional Approach to e-Governance IT driven (What minimum one can achieve) IT enablement -not much IT enablement has its advantages… Easier to implement, with no or minimal legal changes Provides easier status updates, real time MIS, anytime / anywhere service etc But IT enablement alone may not be enough in many cases… Automation The process remains the same, but is carried out electronically

12. Traditional Approach may not be sufficient… The Government process itself might be inefficient ! Processes are designed in accordance with the legislation governing that particular domain in that particular period Some of these Legislations may be old and antiquated Basis of the legal system is to put in controls, and not better service delivery Acts are department-centric, not citizen-centric Rules are complex and tedious 10,000 rules, 0.1 million forms!

13. Legislative intent and process problems…. • Mindset & attitudinal problems • Delivery Agents unsuitable • Lack of empowerment of front-end people • Lack of dedicated delivery teams • Delivery is handled on a part-time basis • Lack of service levels, measurement systems • Legislation was well intentioned and relevant at the time it was drafted • Focused more on control and ensuring compliance, rather than service delivery • Rules added along the way, making the legal framework complex and tedious • Asking for too much information • Burden of proof thrown on Citizen • Complexity of rules & regulations (Anything to do with money is more complex!) • Heavy reliance on manual systems • No concept of Quality Assurance • Jurisdiction (too many ‘narrow domestic walls!’) • Restricted timings • Disparate and sub-optimal delivery networks • No choice of delivery channels • Process & Delivery Channel often combined resulting in delay, malpractice

14. The constraints when the process was designed may not be applicable anymore… Many processes are designed with manual / non-ICT constraints in mind Many of these constraints may not be applicable anymore, with advances in IT.. e.g. During Registration of property transactions, registration department can check Ownership and extent information (available at the Survey office) online – eliminates the need for registering party visiting survey department to update ownership change Processes were defined with compliance and control in mind, and not enhanced service delivery.. Re-engineering the process through GPR allows for process redesign to leverage the benefits of ICT rather than just replicating existing processes

15. GPR and IT are tools to achieving a larger goal… • The larger goal for GPR and IT enablement -is enhancing service delivery, better governance etc • These goals can be achieved by: • IT enablement (IT) alone • Replicating existing (manual) processes in IT systems • e.g. calculating fees using software tools rather than calculator • Government Process Re-engineering • Redesigning processes to improve performance measures • e.g. single window approval for issue of approvals • Both IT enablement and GPR • Leveraging new processes and technology • e.g. self-service railway ticket booking through IRCTC

16. Understanding Business Processes (1 of 3) • Every government service is supported by a set of business processes, which provides approach and guidance to deliver the service • But what is a process/business process/government process? • Business system is a collection of processes that take one or more inputs and create output that is of value to all stakeholders • Business processes move information and / or materials across several units and functions, to accomplish a specific end result

17. Understanding Business Processes (2 of 3)

18. Understanding Business Processes (3 of 3) • G2C Service: Providing a Passport to a Citizen • Process: all activities carried out by Citizen, Government & its agencies • From: Receipt of a passport application form • To: Delivery of Passport / Communication of Rejection • Sub-Process: The Passport process can be sub-divided into • Passport Application Collection • Document Verification • Fees Collection • Passport Processing • Passport Delivery • Activity: various steps in the process, e.g. • Receipt Issuance: Printing a receipt for the Fee collected

19. Defining Business Process Reengineering (BPR) • BPR is fundamental rethinking and radical redesign of business processes to achieve dramatic improvements in critical, contemporary measures of performance, such as cost, quality, service and speed Michael Hammer and James Champy • ‘Changing’/’redesigning’/’replacing’/’eliminating’ the activities and/or sub-processes and/or processes related to a service to improve service quality i.e. • Minimize Time, Cost, Complexity • Improve Transparency, Convenience and Experience • GPR may address all or some of the service quality attributes • Government Process Re-engineering (GPR) has evolved from applying Business Process Re-engineering (BPR) concepts to Government Services

20. Need for GPR in e-Governance High Dramatic Improvement through BPR Performance Measure Benefits through Typical Quality Initiatives Low Time • IT enablement (without) GPR provides results to the stakeholders, but may not address all the attributes of service quality • In particular, IT enablement of an inefficient business process can only lead to ‘inefficient IT enabled process’ – delivering the same results with marginal improvement • GPR may support organizations in dramatic improvement of performance and application of IT on reengineered processes will yield better results for stakeholders

21. BPR/GPR success stories – (1/3) • Indian Railways Issuance of passenger ticket • Physically going to the counter • Filling up application form • Submission at the counter • Confirmation of the ticket • Payment • Printing of the ticket on pre-printed government stationary • Delivery of ticket Total time could be between 2 to 3 hours including travel and queue time

22. BPR/GPR successstories Fundamental rethinking Radical redesign Achieve dramatic improvements No hassle of queuing up No hassle of traveling to the booking counter Convenience of booking tickets anytime, and anywhere Freedom from travel agents Government savings on manpower, and stationary Book tickets online Make payment through credit / debit card Print ticket yourself Send SMS <PNR> to find out the status of booking Access to information on www.irctc.co.in • Indian Railways Do we really need to be physically present at the counter? Do we really need to submit the application form? Do we really need to have the ticket on pre-printed railway stationary? Can the ticket information be made more easily available to the passenger Max 10 mins

24. BPR/GPR success stories – (2/3) • Passport Seva Project Passport Application and Issuance of passport • Physically going to the Regional Passport Office • Filling up and submitting form, at the counter • Verification of documents • Payment of requisite fee • Sending request to jurisdictional police station for verification • Physical verification by police at a later date • Sending of police verification report to RPO • Approval of passport and delivery through post office Total time could be between 30 to 45 days from submission of application to delivery of passport

25. Problems with the passport process • Time taken in police verification is the major contributing factor to delay in passport issuance • Time taken for submission of the application is more than 2 hrs • Less number of counters for accepting the applications resulting in longer queues • Complex application forms and attachments required for submission, resulting in citizens taking help from agents for filling up forms • Large number of human touch points and lack of guidance from staff members • No status tracking mechanism for the passport application • No formal grievance redressal channels

26. BPR/GPR successstories Fundamental rethinking Radical redesign Achieve dramatic improvements • Passport Seva Can we eliminate / reduce the waiting time at the RPO? Can we provide multiple channels for verification of documents? Can we waive off police verification in some cases / do a post verification? How can we reduce the time involved in police verification? Submit application online and get appointment for verification Online payments Get documents verified at RPO / other channels at appointed time System alert sent to police station for verification Post verification by police based on Business Rules No hassle in queuing up at the RPO Police verification delays reduced Overall time taken for getting passport reduced considerably Reduced workload on RPO staff Increased citizen satisfaction

27. Some indicators of the dramatic improvement Such dramatic changes would not have been possible without making fundamental changes in process (e.g. police verification) Source: www.passportindia.gov.in

29. BPR/GPR success stories – (3/3) • State Bank of India Request for a Demand Draft • Physically going to the branch / counter • Filling up the application form • Submission of form • Verification of signature • Preparation / printing of DD • Signature of the official(s) • Delivery of DD Total time could be between 1.5 to 2.5 hours including travel and queue time

30. BPR/GPR success stories Fundamental rethinking Radical redesign Achieve dramatic improvements • State Bank of India Do we really need to be physically present at the branch / counter? Do we really need to submit the application form at the counter? Can we do away with signature verification at the counter? Issue DD on line Transfer funds electronically from your own account Verification through user id and password Request the bank to courier the DD directly to the beneficiary No hassle of queuing up No hassle of traveling to the bank branch Convenience of issuing DD anytime, and anywhere Freedom from Babus of the bank Government savings on manpower Max 10 mins

32. Identifying the need to do GPRe-Governance Project Lifecycle (eGLC) 1. E-Governance Strategy Development 2. Current State Assessment 3. Future State Definition 4. Implementation approach and sourcing 5. Develop and implement IT system 6. Operate and sustain Project Management Office/Unit Change Management and Communications

33. e-Governance Project Lifecycle (eGLC) E-Governance Strategy Development Current State Assessment Future State Definition Implementation approach and sourcing Develop and implement T system Operate and sustain Needs Assessment Define clear vision & objectives Prioritization of services and projects Incorporate domestic and global learnings Identify institutional structures & capacities for implementation Define funding requirements Define monitoring and evaluation approach… Critical assessment of current business processes and pain areas Best practices in similar environments Assess legal framework and current limitations Assess current ICT systems and their ability to support future plans Assessment of current capacities at all levels and their preparedness for e-governance.. Process reengineering & to –be process definition Identity IT enablement opportunities & requirements Define changes to legal & regulatory environment Develop People change and capacity building plan Develop project awareness and communication requirements… Define implementation approach and phasing plan (functional and geographic) Assess detailed funding requirements and business model Develop vendor evaluation and selection criteria Develop KPIs and performance levels for services and systems Develop RFP Bid evaluation and vendor selection Definition of detailed functional and technical requirements System design and development Software quality assurance, acceptance testing and auditing Training and capacity building Change management and project communications Project documentation Project go-live System operations and maintenance Software change management Rollout services and systems (functionality and geography) Objectives and benefits evaluation and reinforcement Sustained change, capacity building and communications..

34. e-Governance Project Lifecycle (eGLC) E-Governance Strategy Development Current State Assessment Future State Definition Implementation approach and sourcing Develop and implement T system Operate and sustain Needs Assessment Define clear vision & objectives Prioritization of services and projects Incorporate domestic and global learnings Identify institutional structures & capacities for implementation Define funding requirements Define monitoring and evaluation approach… Critical assessment of current business processes and pain areas Best practices in similar environments Assess legal framework and current limitations Assess current ICT systems and their ability to support future plans Assessment of current capacities at all levels and their preparedness for e-governance.. Process reengineering & to –be process definition Identity IT enablement opportunities & requirements Define changes to legal & regulatory environment Develop People change and capacity building plan Develop project awareness and communication requirements… Define implementation approach and phasing plan (functional and geographic) Assess detailed funding requirements and business model Develop vendor evaluation and selection criteria Develop KPIs and performance levels for services and systems Develop RFP Bid evaluation and vendor selection Definition of detailed functional and technical requirements System design and development Software quality assurance, acceptance testing and auditing Training and capacity building Change management and project communications Project documentation Project go-live System operations and maintenance Software change management Rollout services and systems (functionality and geography) Objectives and benefits evaluation and reinforcement Sustained change, capacity building and communications.. The highlighted activities in EGLC are carried out as part of the GPR exercise

35. Approach to GPR Problem Identification and Definition • Analysis of citizen grievances & complaints and pro-active Voice of Customer surveys • Analysis of issues raised • Identification of problem and defining unambiguous problem statements

36. Approach to GPR Define vision and objectives for GPR • Define vision for GPR, from problems identified, service priority • Analyse services portfolio and undertake service prioritisation exercise • Define measurable objectives for the GPR exercise

37. Approach to GPR Process Study and Documentation • Study process flow, actors, policies, process stages • Documenting as-is processes and creating Process Maps • Recording time and other data elements for each process step • Validation of process documentation from dept. • Identify and classify PIEs for the processes

38. Approach to GPR Process Analysis • Root cause analysis of process issues and identification of root causes • Analyzing process efficiency - Value Adding and Non Value Adding steps • Analyzing process complexity – Data entry points, Hands off points etc • Definition of key metrics and arriving at baseline indicators (TAT, error rate etc)

39. Approach to GPR Process Re-engineering & Defining To-be processes Elimination or automation of Non Value Adding / redundant activities Identification of solutions (re-engineered process) Evaluation and selection of best solution Definition of To-be processes based on the evaluation Finalization of To-be processes with department Setting of target KPIs

40. Approach to GPR Process implementation / IT enablement & validation Implementation of re-engineered processes Implementation of IT system to handle re-engineered process flow Putting in place mechanisms to monitor KPIs and continuous improvement Change Management, Legal Framework changes etc

41. Overview of GPR

42. GPR

43. Some Recent developments • Rapid increase in the number schemes, projects and plans. • Increase in the number of transactions per scheme. • Huge and increasing data-base. • Urgent need for transparency, speedy information. • Higher administrative efficiency and accountability. • Disseminating information to the public and other agencies. • Transmission of information to Government. • Increased workload especially paperwork

44. Government processes over time • Business Processes are generally simple & efficient when originally designed. They are also user-friendly and deploy contemporary tools & techniques. • Processes become complex & inefficient with passage of time: (HOW?) • with addition of sub-processes to handle exceptions • with changes in environment • with increase in customer expectations • with increase in volumes • We therefore need to Reinvent the business processes

45. Does all this leads to good governance? Air of Mystification about procedures. Long Queues at delivery points. Multiple Visits to Government Offices: Pillar-to-Post. Outcome is in Suspense: OK or NOT OK ! Gatekeepers at every turn. Poor Quality of Service. Service is a Mercy - not a Right. Too many Intermediaries, Shortcuts.

46. Do the government processes mean? Extensive information exchange, data redundancy -- process fragmentation Inventory buffers and other assets -- slack to cope with uncertainty High levels of checking, inspection and control -- fragmentation Lots of rework and iteration -- inadequate feedback Complexity, exceptions and special cases -- accretion onto simplicity Non-integration of information related to citizens, employees, business rules & processes and workflow. Extensive dependence on paper work. i.e. files & forms. Physical movement of these files resulting in delay Non – availability of instantaneous information. Instant view of the status and management statistics not available on a regular basis Information redundancy. i.e. Several files being created for a similar purpose. Long waiting time to know about the status of files

47. Government employees are efficient, are process efficient? • WHY? • Processes are designed in accordance with the legislation governing that particular domain • Some of these Legislations may be old and antiquated • Basis of the legal system is to put in controls, and not better service delivery • Acts are department-centric, not citizen-centric • Rules are complex and tedious • 10,000 rules, 0.1 million forms!

48. What is GPR? Fundamental rethinking and Radical redesign of Government processes to achieve Dramatic improvements in critical contemporary measures of performance such as Cost, quality, service and speed. Based on definition of BPR by Hammer & Champy Hammer who coined the term “reengineering” in his 1990 HBR article

49. Government Process Re-engineering Can • Increase the speed at which document intensive processes are conducted and reduce associated costs and administrative burdens • Add flexibility to organisational processes, allowing your business to scale up or down as required by customer or internal demand • Help reduce capital expenditure by reducing the need to invest in the assets required to perform a service internally • Organise information and documents with electronic document management systems and processes, for example transition to electronic invoicing • Minimise document loss and information leakage • Utilise electronic document formats more often in internal and customer transactions • Improve operational efficiency and customer service levels • Mitigate risk by improving compliance to legal requirement 

50. Why Organizations do GPR/BPR? To address the specific concerns of the stakeholders (citizens/Businesses/ employees) To address the challenges and issues in the services and service delivery To improve the quality of the services To adopt best practices from similar environments To address the changing needs of the customers (citizens and businesses) and the government In Summary, GPR is undertaken to address ‘problems’ or ‘needs’ of the organization or its customers with an objective to improve the overall quality of the services