Panchayat Digital Register (IPDR)

The proposed solution will mitigate the challenges that poor and vulnerable people, especially women, face in accessing benefits of public welfare services and social protection schemes by resolving the complexites of multiple but siloed identification systems. Despite India’s success with Aadhaar (Unique digital identification in India), multitude of identification documents  get used in delivering public service. These are not interoperable for linked transactions across social protection databases and civil-registration system. Furthermore, gender-based norms limit women’s equitable access to social protection services. 

The proposed digital-identification enabled system will enable interoperability between databases, National ID system and social registry; and authenticate real-time validation with audit trail to ensure data-integrity. Improving internet connectivity in selected locations through innovative but contexually-responsive technology solution would add value to the solution in place internet connectivity is low. Transparent, accountable and inclusive implementation mechanism will ensure equal access of public service and social protection benefits to all. 

The public welfare and social protection system databases in India are ineffective to authenticate citizens’ ID solely through Aadhaar enabled digital-identification. This affects almost 22%[1] of India’s population (1.35 billion) . During COVID-19 pandemic, it is estimated that 30%[2] of Indian population will suffer, as 400 million more workers will be pushed into poverty (ILO). Economic Survey (2017) highlights poor targeting, where in 40% of the bottom 40% (224 million poor people) of income distribution are excluded from benefits from key social protection schemes. Save the Children’s field experience highlights that in remote areas this percentage may go to 65%. The  Pilot can  inform other countries to develop similar system to improve their grassroot-level authentication.

• Social Protection System in India is complex due to myriad identifications such as Aadhar-UID, Ration card, BPL Card, MNREGA Card (Job Card), Voter Card, PAN Card etc. This is further exacerbated due to non-interoperability of  systems.
• To access identification cards, a user has to provide various supporting documents and in case of errors in any document, the opportunity cost is very high
• The system is further rendered inept due to poor internet connectivity in rural areas. 

[1]  Tendulkar committee 

[2] As per Rangajan committee

Our target population are those most marginalized people who are at bottom 40% of income distribution, socially excluded, disabled, women and elderly, who are unable to avail social protection benefits due to system-level issues.

Save the Children has immense experience in working with this set of  intersectional marginalized population in multiple settings. We have ongoing projects on Social Protection, Citizens ID and related issues  in 12 states including the proposed State of Rajasthan.  We have had extensive engagements with these sections to understand their problem and support them to avail these benefits.

All these processes, discussions and experiences have helped us to succinctly identify the pain points of people and reach the proposed solution.

Leveraging our ongoing project in the proposed geography, we will organize several consultations with beneficiaries and stakeholders to discuss and strenghthen the key aspects of the solution.

The proposed solution will act as a one-stop solution to avail Social Protection schemes, cut-down on the processing time and opportunity cost for a beneficiary to access them . Overall, it will improve effectiveness and efficiency in access to social protection schemes.

The proposed solution is designed for the poor and marginalized population of rural India, who are living in the remotest part of India. It seeks to improve the effectiveness of existing social protection system by ensuring  interoperability of public welfare and social protection databases at local level. The proposed solution also seeks to facilitate digital authentication mechanisms in low connectivity and user-friendly for vulnerable populations and ensure remote access to services and benefits. Additionally, the solution will also integrate blockchain  to enhance security and audit trails.  Moreover, the entire system adheres the protocols of data security of Government of India

• Facilitate a robust process of decentralised  digital identification for poor people to access public welfare and social protection schemes.
• Considering its expansive coverage, we recognize Aadhaar as  a strong candidate  to create a decentralised system that will facilitate in building technical interoperability between public welfare databases, civic-registries and Aadhaar based National ID System.
• The decentralised system will be updated routinely to provide a more appropriate informationto improve the targeting. A blockchain database will record all service delivery transaction as well as the updates in core datasets. Besides, the proposed solution will have a feature to fix error/ inconsistencies in social protection databases of State Government that would reduce exclusion and inclusion errors.
• Feature of local level updations with rigorous authentication and error check measures to make sure that the sanctity of stored information is not impaired. Unique referencing with the help of a robust digital ID to fetch a holistic profile of individual beneficiaries.
• Transparent and accountable transactions with the audit trail; Direct Benefit Transfers (DBT) based delivery of public welfare / social protection benefits (wherever applicable)

So, in comparison to existing National and Global systems, the proposed system will be more decentralised, will be a one-stop solution, will be updated regularly, improve process error rectification and enhanced effectiveness by reducing targeting errors.  Additionally, the system will promote transparency and accountability and improves effective and efficient functioning of local government. 

The proposed solution is a  technology driven android-based app which will enable business process at Panchayat level. It shall translate the existing manual-system at Panchayat Level into digital system to improve the  functioning of the Social Protection System.  This  will include - desktop-based version for Panchayat officials and android version for Ward members who will support marginalized and poverty-stricken people. The solution will incorporate  offline and online features to include data embedded with biometric authentication.

Through our endeavor to ensure cloud-based integration with the Government’s existing platforms and databases, the proposed solution will inform existing databases as well. A blockchain database will record all service delivery transactions as well as the updates in core datasets.The system will provide a dynamic dashboard to local government

To improve connectivity at the Hamlet level, the proposed solution will entail a virtual private network (VPN) based on radio frequency.  Through audio/visual devices which are linked with servers, authentication and validation  at local levels will be possible in user-friendly way.

Routinely, the ward members will update vitals and other details at village level. An end user can also reach Panchayat office and update their record and register grievances. The data will be uploaded, and mandated verification will be conducted at Panchayat level through VPN network, and further verified at the Block levels. In consultation with stakeholders, security and validation points will be designed. At the District, after another layer of validation, the data will be updated at various databases associated with social protection access. 

• The proposed solution seeks to foster larger impact by improving the lives of  millions of marginalized and vulnerable population by resolving the complexites of multiple but siloed identification systems to mitigate the access constraints to the Social Protection System.
• Specifically,to improve the access to social protection and services by improving the functionality of the ID system at the local level, and enable interoperable features with various other social protection databases at district and state level.
• Based on a decentralized approach, regular, updated and validated data of citizens will be gathered from each Panchayat to feed into the existing social protection system to update their pre-existing information, rectify errors and improve interoperability of the system. This leads to the formation of an integrated network that is linked with ID system. The proposition will reduce the opportunity cost of poor in accessing social protection due to various constraints at system level.
• To achieve this impact and broad outcome, the key broad activities are to create a functional a) Integrated Panchayat Digital Register that updates routinely; b) VPN at Panchayat level to ensure connectivity at local level (if required); c) capacity of local government official and representative on data updatation and digital literacy d) data validation system at various levels; and e)  system to sync data with the existing databases at District levels
• The key intermediary outputs of the entire activities are a) establish a functional Integrated Panchayat Digital Register (IPDR) b) warrant routine data collection and updation  at Local Level; c)  ensure local level connectivity to facilitate data collection; d) ensure data validation at all levels and porting into social protection databases.
• The broad outputs will be to a) improve access to ID system at the local level enabling access of public welfare and social protection benefits to the poor; b) improved chances of correction in IDs  c) accumulated, verified and updated data at the local level.
• These outputs will lead to the achievement of intermediary outcome that the local institutions (Panchayat, Block and District) have most recent, corrected and verified data to improve their planning and implementation of social protection programmes. 

The proposed solution provides digital-identification enabled interoperability between National ID system, social registry and the range of databases referenced for delivery of public welfare and social protection services, together with real-time biometric authentication for targeted delivery of these services. The Panchayat level systems will have a biometric-enabled database which will facilitate the digital identification. The Local Panchayats and ward member will be provided with the UIDAI gateway to undertake necessary correction and rectifications. The Unique Identification Authority of India (UIDAI), Government of India, is the apex authority to manage the National ID system. As per the guideline, which has features to update the information,  the identification will be done at the local level and the data will be uploaded at the UIDAI portal. After having updated UIDAI portal, the rectified data along with UID number (Aadhar number) and other details of citizens- Below Poverty Line number, MNREGA number etc. will be uploaded for verification. These verified data will be ported in the existing social protection databases to update and correct the records, hence improving the interoperability among the system. 

The proposed solution will be simple to operate with Aadhaar based single signon features; and will have a culturally sensitive User Experience (UX) design in local language with limited text and extensive pictorial representation. The UX design will make sure that the elected local representatives of Panchayats, who might have limited ICT capabilities, can avail the use-friendly interface to bring public welfare and social protection benefits to targeted beneficiaries at the bottom-of-the-pyramid. Flow chart driven user manual with operational videos will help improve the usuability of the solution further. The solution would have an offline functionality that provides update of core and transactional data even in locations with sporadic and patchy internet connectivity. From the citizens’ point of view, the most marginalized poor and deprived population will not have travel far distance to avail services or to get their core ID and entitlement related data rectified. It will be done at their neighbourhood with no or minimalistic opportunity cost. 

To ensure interoperability, the existing Panachaya level register will have data portability features with the State level databases for social protection. The IPDR will be designed to ensure that the system will inform databases of key social protection schemes like Mahatma Gandhi National Rural Employment Gurantee Act (MNREGA), Social Pension, National Health Insurance for Poor and Vulnerable (called Ayushman Bharat health insurance IDs) and other key social protection schemes. The IPDR  data  collected at Panchayat level will be aggregated at the District level after required verification and authentication at the Block level. Further, the set of accumulated data will be used to port information in the cases, where there is the rectification or/and updatation required. Here the data will be updated and ported into the relevant database after required authentication and security checks. The design process of IPDR will review the features of existing databases and Civil Registration System and will be informed from their design, structures, keys and variables that would enable the interoperability. Further, the proposed solution will able to update, rectify and edit information through Aadhaar services that UIDAI gateway provides. 

The proposed solution will incorporate frugal innovations such as VPN based on radio connectivity that enables the solution to function properly in the region with low or no connectivity from a standard telecom operator. Further, the audio-visual feature would help to improve the verification process for people with low numeracy and literacy level.  The biometric solution will reinforce that changes are secured and reliable.

Moreover, at the field level, there will be dedicated personnel, ward members and Panchayat Secretary to facilitate the services. The ward members and Panchayat secretaries will be imparted training and, during the development of prototype and pilot, an assessment will be undertaken to gauge what kind of support and to what extent should be provided to the front line service provider to ensure the proper operation of the system. During prototype development and pilot phase, handholding support will be provided and the process will be documented to inform scale-up.

In the prototype phase, the proposed solution will cater to one of the remotest tribal districts of Rajasthan, Dungarpur. The total population, as per census 2011 is approximately 1.3 million (Around 2.5 million estimated in 2020 as per decadal growth rate projections). Out of this total population, around 94%  live in rural areas. As per the world bank poverty estimation, around 17% of the population are living below the poverty line and in the remotest part of the district.

During the prototype phase, it is anticipated that 0.3 -0.4 million population will benefit from this solution. It is anticipated that the prototype will be developed and tested in 12-18 months period. The prototype will be then piloted in one of the regions of Rajasthan for a year and will scale up in the entire state in five years. While the system will be scaled in Rajasthan, the organization will advocate the same with other States and union governments to pilot the system. 

In year and a half, we anticipate that the prototype will be tested and will be ready for a pilot in one or two districts in the State of Rajasthan. In five years, we expect the solution to be scaled up in Rajasthan. We anticipate that the State Government, Central government and many federal countries  can replicate the system and its processes. The proposed solution will improve access to social protection services and schemes-cash assistance with no or minimalistic opportunity cost. The continuous and regular access to social protection will not only reduce the risk of hunger, poverty and deprivation but also improve the resilience of families to cope with any shock and stress. Further, continuous and improved access to social entitlements and services also reduce associated risks of poverty-like malnutrition, ill health, child-labour, school dropouts, child marriage etc. 

During the prototype development stage, the organization will be working with Local Government representative and service providers. The Panchayat Level Register will be developed and installed at the local government level, and the local government officials will be capacitated to update the information on a quarterly basis. The ward members will be responsible to amass updates on vital events from their respective wards and update the same in the PLR on a quarterly basis. The information will be collated in the cloud based system as per the given village, panchayat and block codes. Overall, these solution will also improve the functioning of local governance. 

We envisage four types of problems-

a) Technical: In remote areas, technology and connectivity would be an issue. Cloud based integration would be a challenge in case of no or sporadic internet connectivity. Dysfunctional Government Server also may prove to be a challenge. Additionally, there might be errors and security breach in the databases due to changes done in the Social Protection System.

b) The opportunity cost of poor and marginalised people to come to Panchayat office which at times 3 to 5 kms away from their hamlets, without any transport facilities may be a financial challenge. Marginalized and poor families may not like to spend so much of time as that entails loss  of their one day of labour for them.

c) All ward members may not be equally motivated to fill and update the details at the local level. They may face a challenge in using and operating the tablet-based system. At the local level, the ward member may not be available to do the tasks.

d) Transfer of Champions within government and administrative set-up during the prototype development may impede the progress.  

1. To address technical issues- the proposed solution will have offline and VPN features to address internet connectivity issues. For ensuring, cloud integration at District level, Save the Children has been working in Dungarpur since 2009, has established a good rapport with District and State level Administration. We anticipate buy-in from the administarion as well vis-à-vis required approvals. The Blockchain features in the solution will help in countering the security breach and also to keep an audit trails of changes in the databases.
2. The solution will offer doorstep solution to the poor and marginalised families so that they only bear low or marginal opportunity cost.
3. Proper training and handholding support will be provided to the ward members to fill and update the details. Additionally, they will be motivated to ensure that the data will be filled and updated regularly. During the prototype development phase, a token of appreciation will be provided to each ward member for successful updatation of data. During Scale-up, efforts will be made to ensure this component will be added into the Government Policies.
4. The entire effort will also be clubbed with Transparency and accountability mechanism. Grievance redressal mechanism will be built-in to provide an opportunity to end user to register any irregularities and exclusion, as per the State Right to Public Service Act. 
5. Save the Children will strive to enter into written agreements or with letter of intent with District Administration to avoid the delay in the progress of Prototype development and also for initiating pilots. 

Pranab Chanda

Neema Pant

Sanjay Sharma

Anindit Roy Chowdhury

Abinash Lakhar

Save the Children is well-positioned to deliver this proposed solution due to the reasons enumerated below -

1. In the proposed geography, Dungarpur (Rajasthan), the organisation has been working since 2009; and has a very strong rapport with communities, local organisation, local governance members and local administration. We have a small office in the district with around 20 project staff. 
2. In our previous intervention, we have established a VPN based radiofrequency platform. We will leverage this existing platform for the development of this prototype. 
3. Save the Children has also State and National level presence and share a strong rapport with State Administration. The organisation is also working very closely with NITI AAYOG-the think tank for Government of India. This association will help to carry out the prototype development process
4. Save the Children has a team of full-time staff and consultants, who have a strong understanding, capacity and experience of working on the issues related to Social Protection schemes, its systems and National Citizen IDs. Besides, we also have an inhouse capacity who can work on technological aspects. In our previous projects, we have demonstrated and worked on technological interventions. 
5. The organisation has also partnered with a large number of grassroots organisation in the country and has two key partners in the proposed District. 

The organisation works with four types of partners – a) Local NGOs, b) Local CSO, c) technical organisations, d) donor organisation (Foundations, Donors, CSRs etc).

With local NGOs and CSOs, we collaborate to reach out to most marginalised and poor people in the remotest and hard to reach areas. We leverage their existing knowledge of the local, cultural, social and political context of the target and provide our technical and handholding knowledge and expertise on a various subject related to rights and well-being. 

We work with technical organisations as per the project needs and demand. We identify and work with based on their technical knowledge and expertise in the subject or areas where we need support to deliver our projects.

The third type of organisation are the donor organisations. We collaborate with them to fund our projects and interventions.

Save the Children has a strict and comprehensive due-diligence process and system in place to enter into a partnership with all four types of partners.

Besides, we have also partnered and associated with Government Bodies and Administration to provide technical support to carry out some of their development. At present, in various capacities, we are associated with NITI Aayog,  the policy think tank of the Government of India and with some of the large scale public programmes in multiple states.