Prepared for the National Institute for Smart Government (NISG) [1] in Hyderabad, India, this 40-page report examines whether the development of telecentres is a replicable, catalytic strategy for development in India's economically poor, rural areas. Author Chetan Sharma here evaluates a particular approach to information and communication technology (ICT) for development (ICT4D): the creation, on the part of a government (in this case, the Government of India), of rural telecentres.

In sum, the paper begins with an examination of the existing ICT4D and e-governance models operating in this country (most of which deliver Govt. to Citizen (G2C) and Business to Consumer (B2C) services from information kiosks). The paper also provides a snapshot of existing initiatives, assessing their successes and failures, and extracting lessons learned from these experiences. Sharma also poses several strategic questions related to telecentre use in India in an effort to spark debate on whether and how ICT can surmount at least some of the social, political, and administrative challenges in this country - and become a viable approach for the provision of health, education, and other social services.

Specifically, this evaluation was carried out in the context of a plan on the part of the Government of India to set up 100,000 "common service centres" (CSC) that are meant to provide high-quality, cost-effective video, voice, and data content in the areas of e-government, education, health, telemedicine, and entertainment. Sharma characterises an information kiosk, or a CSC, as a "consumer-driven, cost-effective and 'citizen-friendly' shared community facility, equipped to render variety of Business to Consumer (B2C), Government to Consumer (G2C) services." For instance, government kiosk models provide services in domains such as e-municipality, e-Panchayat, e-taxation, e-health (including telemedicine), and agriculture/natural resources management and related information services.

Sharma goes on to explore various issues associated with the operation and sustainability of telecentres, outlining the successes and failures of various types of kiosk models. Looking within the framework of government kiosks in particular (as compared with those created by the private sector, those shaped by public-private partnerships, or those built by non-governmental organisations (NGOs) and/or civil society), the author stresses that the multiplicity of authorities is a challenge when it comes to the smooth functioning of these telecentres. Strategies developed to address the accountability issues raised by this situation have included creation of information technology (IT) departments in various states, and the setting up of decentralised, district-level, non-profit organisations focusing on e-governance issues. Efforts to smooth out operational challenges seem to be key, since Sharma found low consumer usage of government kiosks overall: "Even though current services from the Kiosks might be getting delivered cost-effectively and efficiently, there is no reason for the citizen to visit the Kiosks if the number of services available are few and far in between."

Sharma offers a number of case studies to illustrate how and why some government-sponsored telecentre initiatives are/are not working. To highlight a few strategies for success, it appears that government kiosks have been, in Sharma's estimation, built on an effort to ensure equity and participation - and this has been valuable, he believes. For example, in the case of eSeva and Akshaya, certain kiosks have been set aside for the women's self-help groups (SHGs) in Andhra Pradesh, and for neighbourhood (Kudumbashree) groups in Kerala. Sharma did not find similar levels of participation in private-sector telecentre projects. Along these lines, ensuring delivery of services to remote hamlets is considered key. The author also endorses the government's focus on following a carefully designed and documented monitoring and evaluation (M & E) system because he believes that doing so fosters transparency and openness, since record-keeping is subject to audit and inspection.

However, according to Sharma, there have also been weaknesses associated with the kiosk services run by the government, such as the failure to ensure sustainability, the need for manual interventions of government authorities (which delays service delivery), the lack of efficiency in redressing citizens' complaints, and corruption and malpractice.

He goes on to offer a similar analysis of private sector kiosk models - detailing operational issues and offering thoughts on successes and failures of existing initiatives. To cite only one point discussed here to explain the difficulties in rolling out these private-sector-sponsored telecentres, rural markets do not - according to Sharma - offer sufficient attraction for educated and qualified youth, particularly if they have to live and operate kiosks in the villages. Since kiosk operators "need to constantly evolve innovative marketing & business development strategies for enhancing the market demand by resorting to door-to-door canvassing for the usage of services and educating the consumers about the services", the lack of engaged operators can exacerbate the challenge of community mobilisation and empowerment ("it is very critical to integrate the rural kiosks with the community for which PRA [participatory rural appraisal] and participatory meetings need to be accomplished.")

Despite these challenges, private sector telecentre models have, in Sharma's analysis, achieved successes, such as by meeting the growing need for value-added, cost-effective educational services (e.g., basic ICT literacy, advanced computer skills, and e-learning modules focusing on mathematics, science, and English). In addition, there may be lessons to be gleaned here on the sustainability front; these private-sector kiosk operators "have been able to develop efficient sustainability models by their sheer grit and determination."

Sharma asserts that the model of Public-Private Partnership (PPP) kiosks "is perhaps one of the few workable options available for sustainable development". Despite continuing challenges, such as the need to integrate these kiosks with the work of Local Self-Government (LSG) and Panchayat Raj Institutions (PRIs), Sharma contends that this partnership strategy is important in the e-governance space in light of "an increasing demand from the people at various levels that the Govt, authorities as well as other stakeholders take an active role in the community, that promises are delivered and that public funds are used most effectively and optimally."

Having outlined and evaluated existing kiosk service domains and ownership models, in Part II of this report, Sharma explores lessons that have emerged from existing kiosk models and puts forth a recommended framework for the CSC implementation. He stresses the importance of involving marginalised populations in the process - ensuring their access to the services. For instance, when kiosks function as part of SHGs (and owners of the kiosks get paid by Panchayat officials for such programmes as IT literacy), smoother integration of the telecentre into the community can be expected, Sharma claims. He recommends formulating a village-level/Panchayat-level governance structure for the kiosks which is triggered by community-driven development (CDD). Also, he stresses that the role of a Village Level Entrepreneur (VLE) is crucial when it comes to delivering e-governance to rural populations. Preferably a person between the ages of 20 and 30 would be appointed, and then rigourously trained in ICT skills and internet proficiency (a list of suggested courses is provided).

Challenges specific to the rural environment need to be considered, Sharma explains, such as the need for a rugged, dust- and dirt-proof, low-power-consuming personal computer (PC). It is also important to create a long-term, "rational" software licensing policy, and to encourage home-grown ICT4D solutions and field deployments. However, a key point to emerge is that technical issues are not necessarily pivotal when it comes to telecentre success (connectivity is "not the panacea for sustenance and efficiency", Sharma says). Efforts to foster equity and participation in the running of CSCs (telecentres, or information kiosks) - as well as to ensure transparency in the governance in operating these facilities - are, in Sharma's estimation, core components of a viable telecentre strategy.

To request a copy of this paper, please contact the author, Chetan Sharma, at the contact address below.