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________________________________________________________________________

Process Documentation Report

Of

IVRS Based Daily Monitoring System (DMS) for Mid-day Meal

Scheme

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Contents Page No

I. Executive Summary 3

II. Background 4

III. What is IVRS? 11

IV. The Process of IVRS 13

V. The Situation Before and After 15

VI. Impact of IVRS 17

VII. Conclusion and Recommendation 20

VIII. The Way Ahead for the State 20

IX. Annexure 22

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I. Executive Summary

The Interactive Voice Response System (IVRS) is a technology which

effectively uses the interface between computer software technology and

mobile technology. The use of this system in the monitoring of the Mid

Day Meal Scheme has proved to be a „tool of decision making in the

hands of the decision-maker‟. This system has been successfully

operationalised in Uttar Pradesh. Launched in June 2010, the IVRS has

come as the answer to the need for a convenient and cost-effective

method of monitoring the Mid-Day Meal Scheme on daily basis in Uttar

Pradesh, which is part of the world‟s largest lunch programme.

The IVRS entails placing system generated, automated calls to the

headmasters/teachers of government, government-aided, and local

bodies-schools where mid-day meals are cooked. Each headmaster or

teacher keys in the figures for their respective schools, i.e., of how many

children have had lunch that day. The system then automatically

generates a data base for the entire state.

Initiating such a system has had its set of challenges both in terms of

technology and management. The major challenge in getting real time

data from almost 1.52 lakh schools was to get it through the „pull‟

method, i.e., extracting the required information from the respondents.

Further, this had to be done within the given timeframe after the meals

are served and before the school is closed for the day. A system like this

does not have to depend on the respondents to initiate the provision of

data from their end. Again, ensuring that the teachers do not spend a

single penny to deliver the data was another major challenge. Above all,

the acceptance and user-friendliness was crucial in the search for a

system that fit in terms of requirement, design and viable technology. It

also called for caution as it was one-of-a kind, and also the first of its

kind with no previous models to bank on. Only then could the vision, as

conceived by the Mid Day Meal Authority, way back in 2007, be realized.

Overall, the end result is a success story that is worthy of emulation by

various other sectors. Most importantly, it has brought in a system of

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accountability and transparency, primarily because data is available

almost immediately. Upon stabilisation of this system, this data could

serve various other purposes, or new components could be added to the

existing process. Nevertheless, its impact has been that compliance with

the scheme has improved to a great extent, which is the ultimate

objective of the monitoring system. This report is a process

documentation of how this scheme was conceived and implemented; and

also the factors that have made it a successful experiment in e-

governance.

II. Background

The Interactive Voice Response System (IVRS) was launched in June 2010

by the Mid Day Meal Authority (MDMA) in Uttar Pradesh to track the

number of schools that served Mid Day Meals (MDMs) on any particular

day. It also tracks the number of children who have had lunch in the

school on the prescribed working days.

Mid Day Meal Scheme is a welfare scheme of the Govt. of India,

implemented through the State Governments and is the largest lunch

programme in the world. Consequently, a scheme of such scale, detail

and budgetary allocation to the tune of about Rs. 1700 crore in U.P. alone

and 10,000 crore for the whole of India annually, required a stringent

monitoring system. This is a crucial requirement, as the economics of

the scheme reveals that even a small increase at any one point would

escalate the total costs to a great extent.

The guidelines of the Mid Day Meal Scheme too provided for a web-

enabled Management Information System. In 2007, a proposal for the

same was submitted by the MDMA, with options for monitoring on daily

and weekly basis. It stated, among others, that a web portal, with a

messenger service that could record information on a database be

created. (Refer 3 for original concept paper).

However, not much was done in the government echelons to follow-up

this proposal. Nearly three years later, the first Joint Review Mission of

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the Government of India (held in February 2010) with representatives

from the Govt. of India, UNICEF and MDM,UP1, stated that “There is no

proper mechanism to monitor the implementation of the MDM scheme in

terms of regularity, quality and quantity below district level. It is

suggested that for proper monitoring, a web-based MIS for transmitting

data directly from the school to state level should be developed. It was

found that an action plan for SMS based daily MIS should be developed. It

was found that an action plan for SMS based daily MIS was prepared at

the MDM authority level in July 2007, which may be helpful in designing

and development of such a monitoring system”. Thereafter, the proposal

received renewed impetus. The IVRS based concerned monitoring system

was devised in a span of 2-3 months. It was finally tested in June 2010,

and became fully operational in July 2010.

At this point, it is useful to understand the system that was in operation

for monitoring until June 2010. As per this system, an MDM register is

filled up at the school, block and district level. In most cases, in practice,

this number used to be taken from the attendance register, rather than

through a head count of the number of students who availed of the

facility on any particular day. Apart from that, the time-lag in submission

of this information leaves scope for distortion of information and

submission of manipulated data at times. Consider the case when the

average attendance in any school is about 55-60%, and the MDM register

has recorded the data as 80-90%. This was a pointer that only accurate

and timely information could help clarify such situations.

The data provided by the schools is compiled at the block level, and then

at the district level. The compiled data is then submitted to the Mid Day

Meal Authority on a monthly basis.

A ringside view of the Mid Day Meal Scheme indicates its scale and detail,

as described below. It also helps appreciate the need for a regular and

efficient monitoring system:

1 The members were: 1. Mr. Gaya Prasad, Director, MHRD, Govt. of India 2. Mr. Amod Kumar, Director,

Mid Day Meal Authority, U.P. 3.Dr. Rubina Maiti, UNICEF, U.P., Lucknow 4. Mrs. Arundhati Dhuru,

NGO Representative and 5. Mr.R.K. Mishra, Chief Consultant, Govt. of India

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A hungry child is less likely to attend school regularly. Hunger drains them of their will and ability to learn…chronic hunger also delays or stops the physical and mental growth of children1

The Mid Day Meal Scheme was launched in accordance with the guidelines of the

Government of India in September 2006. As per the scheme, cooked meal was to be

provided to students of class I to V in Government, local body, government-aided

schools and those with EGS/AIE2centres. Since October 2007, upper primary schools

under the government and government-aided category too were included under the

scheme. At present, the scheme covers 1,08,063 primary schools and 44,684 upper

primary schools. In all, 1,70,64,944 children from primary and 44,13,943 from

upper primary schools benefit from this scheme.

Initially, when the National Programme of Nutritional Support to Primary Education

(NP-NSPE) was launched way back in 1995, it essentially offered free supply of food

grains @ 100 gms per child per school day, and subsidy for transport of food grains.

The State Governments were to provide for the cooking cost. Unable to fund the cost

of cooking, they began distribution of food grains, which defeated the purpose

behind the Mid Day Meal Scheme. However, these difficulties were overcome when

the Mid Day Meal Scheme was launched.

As we know, malnutrition adversely affects Universalisation of Elementary Education.

The objective of the Mid Day Meal Scheme is to provide the children with a basic

nutritious meal, which in turn would increase the concentration and retention levels

in class. It would also bring about higher attendance rates and lower drop-out rates.

There is also evidence to suggest that apart from enhancing school attendance and

child nutrition, Mid Day Meals have an important social value and foster a sense of

equality when children sit together and share a common meal.

The calorific requirement within the scheme amounts to 450 cal and 12 g protein for

the primary level; and 700 cal and 20 g protein for the upper primary students. The

2 Education Guarantee Scheme/ Alternative and Innovative Education. Centres with EGS/AIE have been

covered under the National Programme of Nutritional Support to primary education (NP-NPSE) since

2002, while the programme was initially launched on 15 August, 1995 as a Centrally Sponsored scheme,

starting with 2408 blocks of the country. [Reference: National Programme of Nutritional Support to

primary education, 2006 – Guidelines for Mid-Day Meal Scheme)]

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menu prepared in accordance with this requirement is as follows:

Day of the

week

Menu

Monday Roti sabji with soyabean or dal ki bari with

namkeen dalia

Tuesday Rice sabji with dal or chawal sambhar

Wednesday Khadi chawal or kheer

Thursday Roti, vegetable, dal or namkeen dalia

Friday Tehri

Saturday Rice, vegetable with soyabean or kheer

Implementing a programme of such magnitude and specifications calls for detailed

and thorough planning and budgeting. As per this scheme, the cost of food grain,

construction of kitchen, devices and transport is borne entirely by the centre. Only

the „conversion cost‟.i.e., cost of condiments/vegetables/oil and the salaries of the

cooks are shared between centre and state in a 75:25 per cent ratio. This conversion

cost works out to Rs.2.61 per student per meal at the primary level, and Rs.4.03 for

the upper primary level. The food grains are obtained directly from the FCI go-down

nearest to the school. It is the responsibility of the FCI to ensure continuous supply

of adequate food grains in its depots. The funds under the „conversion cost‟ are

transferred from the centre to the state in accordance with the relevant policies and

procedures applicable in passing on funds to the State governments. Further, the

funds under „conversion cost‟, kitchen construction and kitchen devices are directly

allocated by the State Govt. to all District Magistrates who are nodal officers for

implementing the scheme. The District Magistrates are assisted in this task by their

District Basic Education Officers and an MDM cell comprising a coordinator and a

computer operator. The funds for transportation expense and MME (management,

monitoring and evaluation) are allocated to MDMA.

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The funds allocated by the State Govt. for conversion cost are transferred to gram

nidhi-V accounts of about 52,000 gram panchayats in the state through the

respective district treasury for implementation of this scheme in the rural areas. In

the urban areas, it is transferred to the accounts of wards. In some cases, the

scheme is implemented through NGOs in the urban areas. The NGOs get the

expenses reimbursed as per norms after they implement the scheme. There is also a

7.5 per cent hike in the budget allocated to the MDMS every two years.

The table below shows the number of schools and students availing of the scheme.

Profile of Schools/Beneficiaries

Primary Upper Primary Total

No. of Schools 1.08 Lac 0.44 Lac 1.52 Lac

Enrolled Students 158.65 Lac 44.80 Lac 203.45 Lac

Students availing MDM 102.03 Lac 35.24 Lac 137.28 Lac

Number of school days in a year -220

In case of drought, the scheme runs for about 41 more days during summers

Looking at the magnitude of the scheme, it is easy to appreciate why

such a strong need was felt for a suitable monitoring system. It is evident

that the existing monitoring system in operation was not sufficiently

effective. Under the NP-NSPE, maintenance of accounts and generation of

reports was generally being done manually, which was time-consuming,

error-prone and labour intensive. It is difficult to generate analytical

systems using such manual methods. The MDM register, which indicates

details of all transactions made and materials used, is to be filled up by

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the Panchayat Sachivs and Gram Pradhans, but this was not being done in

practice. Further, there were several problems with this structure of

reporting, namely:

No school-wise reports were available at either the district or state

level, which makes it difficult to identify the schools in which the

meal was not served.

When there is a monthly time lag in submission of data, the scope

for manipulation and distortion of data remains higher. Such

inaccurate reports (that consumption was higher than the actual

figures) make a dent in the scarce resources available for welfare

schemes.

Thirdly, when the time lag is as much as a month, remedial

measures itself would get delayed, thereby jeopardising the

efficacy of this scheme.

Fourthly, during exceptional circumstances (such as meal not being

cooked/more than 90 per cent students availed the meal/ food not

being cooked for more than three days), there were no „exception

reports‟ available to explain the reasons for the same.

In case of delay of information from any particular school, the data

would take a month to become available.

The physical inspection and monitoring of the scheme was being

done on a random selection basis, which did not give a complete

picture of the situation.

Finding a Solution through IVRS

The MDMA, for long, had been on the look out for a suitable monitoring

system. As transparency of information plays an important role in any

monitoring system, it was felt that instant information is most

transparent, as delays would give room for manipulation. The system

would have to be one in which information could be extracted from the

base level (school level) instead of the nodal (district) level. Taking all

these aspects into consideration, a proposal for a monitoring mechanism

using short messaging service (SMS) was submitted in 2007 by MDMA. As

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mentioned in the previous section, not much was done for taking up this

proposal until the recommendations from the Joint Review Mission held in

February 2010.

The path to acquiring a suitable system went through its fair share of trial

and error. At first, the SMS (short messaging service) method was

explored, in which the teachers would have to pay to send the SMS across

some networks. But this would leave room for excuses from the teachers‟

end. For example, they could cite that it costs them, or that they were

busy, or that the number was not reachable, etc. Even if their expenses

are reimbursed, it would add to the burden of financial transactions and

audits. Another problem was that the teachers would need to be trained

in composing and sending messages. While it was possible to create a

standard template in which to send the information, any change in this at

a later stage would require another round of training.

In the second phase, the option of providing the data by SMS through

different networks on different mobile numbers was explored. While this

system could work as long as the SMS was sent within the same network,

it would be cumbersome, complex and expensive across networks, where

problem of transit loss of SMS still remained unresolved. Besides, all

these methods still relied on the „push‟ mechanism, in which the

personnel at the grassroots level had to take the initiative to send the

information. Aware that a purely computer-based system would not be

effective at the village level, but that the mobile phone had become

common place, the MDMA was on the look out for a system that could

utilise the interface between computer technology and the mobile.

A shift at the conceptual level explored the possibility of the „pull‟

method, i.e., of extracting information from the field level. In that case,

the information would be both regular and timely. It was at this stage

that a monitoring system using IVRS as the technology was devised. This

technology allows computer-generated calling software to be responded

to through the keying in of numbers on the phone. Although the

technology as such is already widely used by airlines and railways to track

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timing and make reservations, its use in monitoring a scheme on such a

large scale was a new and unique concept. .

III. What is IVRS?

Until this time, a „pull‟ mechanism on such a mass scale was yet unheard

of. But ultimately a mechanism was devised and a live demonstration

convinced the users and stakeholders about its efficiency and viability.

The Interactive Voice Response System is a technology in which

computer-generated calling software is to be responded to through the

keying in of numbers on the phone. It can be used to feed hundreds of

phone lines into an IVR programme and then into the internet. This is

followed up by the creation of a website that displays data from these

online data bases.

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This mechanism is illustrated through the diagram below:

As the diagram illustrates, the server at the call centre is the nodal point

from which information is collected, processed and transmitted to the

relevant website.

School

- Registration

- Daily Attendance

- Confirmation

MIS Application & DSS

Mid Day Meal

Functionaries at

District/ Division /

State levels

MIS Reports / Exception

Reports etc of all schools

are available here for

decision making at

different levels

OB

D

Acknowledgement

Information

through IVR

through IVR Internet

Virtual

Number(s

)/ Server

OBD

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At Level One, an outbound call is made from the centre‟s server to the

school, which is transmitted through the mobile network transmitter.

The mobile numbers of the headmasters/teachers are already fed into the

system. Each headmaster or teacher keys in the necessary data and

hangs up. The data is recorded in the computer software. Finally, the

data for the entire state is compiled and made available on a website.

Through the internet, this data finally reaches the Mid Day Meal

functionaries at the District/Division and State levels.

IV. The Process of IVRS

To implement this system, a plan was drawn up, and all necessary

approvals were taken from the Government of UP, such as the Governing

Body of the MDMA headed by the Chief Secretary and issuance of a

Government Order. At the next stage was the more important task of

human resource management, which was to take into confidence all the

stakeholders. An informal meeting was organised with the teacher

representatives. The teachers tended to be a highly „organised‟ lot. Since

neither mobile phones nor any new SIM cards were to be given to the

teachers and the system was to rely on using the personal mobile phones

of teachers, it could fail if the teachers refused to cooperate in using it to

feed the data. To overcome this aspect, a special live demonstration of

the mechanism was organised for the teachers. In all the 820 blocks of

the state, trainers from the Head Quarters were sent, not only to train and

give live demonstration, but to generate excitement and curiosity, and

inculcate a sense that they are all in this exercise together.

The demonstration provided all teachers with an opportunity to actually

key in the information from their cell phones to this automated call and

see the information transferred on the data base. The session also

elicited some valuable responses from the teachers that were

incorporated into the mechanism. A separate training was held for all the

MDM DCs in April 2010 at Lucknow with the support of UNICEF. The DCs

were trained about IVRS, and feedback taken from them.

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How Does the IVRS Work? The IVRS system entails placing an automated

call to the headmaster of each school. The calls are made from the

number 8808611111. A pre-recorded voice asks how many mid day

meals the school prepared that day. The headmaster keys in the number

and hangs up. The whole process does not take more than 30 seconds.

In case the head master is unable to take the call, the call automatically

goes to the teacher who comes next in the hierarchy, and then to the

next. In case the teacher/headmaster misses out on replying to the call,

s/he could also give a missed call to the same number for being called

back by the System again so that he need not spend out of his pocket. A

full-fledged system of frequency of calls, call escalation, auto SMS for

defaulters sent to the upper rungs in the official hierarchy has been

designed so that data is captured any way. Beyond this, there is a helpline

or toll free number for feedback, or to convey any kind of information

related to the scheme. If the meal was not served, the

headmaster/teacher would punch in “0”. Any change to be made in the

data would also have to be made on the same day. The entire data base

for that day is compiled within 2-3 hours of the meal being served. (Refer

Annexure-1 for transcript IVRS call)

A monthly meeting is held between the village Pradhan and headmasters

of all schools, wherein the headmasters are required to verify or correct

the information, which is immediately uploaded into the system. While

the concerned functionaries have access to this data on a daily basis

through a login and password, a weekly district-wise report goes to the

concerned DMs by auto-generated e-mails from the System. A list of the

schools in which lunch has not been served for the last seven days is

provided in this information. The DM now has adequate information

based on which remedial action could be taken.

Operationalising the IVRS: It has taken 2-3 months to conceptualise,

devise and provide a technical format to this system. To begin with, all

the schools in the state were „codified‟ and mobile numbers of about 4.5

lakh teachers collected. Since the system generates calls to 1.52 lakh

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schools within a two-hour time frame, 60 PRI (Primary Rate Interface)3

lines were hired, which was the only way through which 1800 calls could

be made simultaneously, at the rate of 30 calls on each line. The

telephone numbers of all concerned „data providers‟

(headmasters/teachers, etc) are also programmed as per hierarchy and

the appropriate algorithm worked out. A call centre with ten seats was

also set up for human interface in the virtual system. The test run of this

system began in June 2010; and it has been running successfully since

July 2010.

Costing: The expenses involved in the IVRS work out to be very

economical at Rs. 25 per school per month. This is inclusive of the costs

of technology development, system installation, infrastructure and

regular operational costs. However, the unit of payment is data; not the

number of calls made – no data means no payment to the vendor despite

any number of calls that the vendor would have made to fetch the data. A

third party independent technical auditor has also been roped in so as to

check any data fudging in the System.

Since the data is compiled on a daily basis on www.upmdm.in, the

monthly report provides a complete profile, from which trends could be

deduced and their reasons explored.

V. The Situation Before and After

A brief summary of the situation before and after helps recognize the

advantages of the IVRS:

Before the IVRS system was put in place, it would have been

impossible to tell how many meals had been cooked on any

particular day. But now, it is possible to tell exactly how many

3 The Primary Rate Interface (PRI) is a standardized telecommunications service level

within the Integrated Services Digital Network (ISDN) specification for carrying multiple

voice and data transmissions between a network and a user.

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meals were cooked; and that too by the end of the same working

day.

The IVRS has brought in the system of daily reporting, where as

earlier it would take a month to generate the compiled report.

Since the day-wise report is available at the end of each working

day, it means that remedial action may be taken immediately,

rather than at the end of the month.

The IVRS system is able to generate school-wise data. The earlier

system was unable to generate school-wise data, as the data used

to be compiled for the entire district. But now, it is possible to

know the exact number of schools in which meals were not cooked;

and also the exact number of students who have had lunch in each

of the schools.

Since IVRS gathers information directly from the base level, i.e., the

schools, the scope for distortion of data at the block or district

level is eliminated. The earlier system, on the other hand, left

much scope for such manipulation at both block and district levels.

The IVRS provides for the data to be displayed on the website

www.upmdm.in, every day, which enables functionaries at

Country/State/District and Block level to access the data by using a

password. As of now, the data is password protected due to

security reasons. Weekly reports are e-mailed to the DMs so that

the information is brought to their attention.

As per IVRS, print outs of the monthly reports (compiled from daily

reports) are made available to all school headmasters for

verification, who verify this at the time of their monthly meeting. In

case of any discrepancy or correction, the data can be rectified at

this level and the same is updated on the IVRS.

IVRS ensures that the teacher or headmaster does not have to

spend a single penny while providing information. Earlier, the

headmaster/teacher would have to make the effort to inform the

ABSA5 either directly or telephonically in case meals were not

cooked. The fact that the teachers do not have to spend from their

pocket itself has ensured the strengthening of the IVRS. It also

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eliminates tasks of reimbursing and auditing such telephone

expenses.

For the BSA/ABSA, monitoring the Mid-day meals is an additional

responsibility; as s/he does not work exclusively for the Mid Day

Meal scheme. So, even in case of reports from headmasters or

teachers that meals were not cooked, this information would not be

given the seriousness it deserves. Eventually, the matter used to

be brushed aside, or concealed. In such cases, no remedial action

would be taken. But now that the IVRS generates daily reports,

which is available on daily basis to the District Magistrate, the BSA6

and up to the State level, it is not possible to conceal the

information.

The IVRS uses the „pull‟ method, whereby the user is able to

independently extract information from the data providers such as

the head masters and teachers within school hours. Earlier, it used

to be in the hands of the teachers to report or not report the

situation.

The monitoring system prevalent earlier was based on manual

physical monitoring, which was laborious, time-consuming and

error prone. More over, it was done on a random basis. But IVRS

ensures daily monitoring of each and every school that falls under

the MDMS.

VI. Impact of IVRS

Decision Making: “Information is power”. Until the time when the IVRS

became operational, the decision-makers, such as the MDMA/ DM/BSA/

DC etc, did not have timely and accurate information, based on which

decisions could be taken. For example, even if reports came that meal

was not cooked, there was no structured way to verify these reports.

Shri Sudhansu Tripathi, Chief Finance Officer of the Mid Day Meal

Authority, points out an important change in human interaction itself,

ever since the IVRS has been functioning smoothly. Discussions between

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partners and stakeholders have become more „focused and

straightforward‟, since it is now on the basis of accurate data.

Whereas earlier the MDM register showed the attendance figures as the

number of children who availed meals, it is now done by an actual

headcount at meal time. Consequently, the record shows fewer children

taking meals, indicating that the earlier figures were probably inaccurate.

Further, it is possible to identify the schools in which meals have not

been cooked. For example, before the IVRS came into operation, nearly

27,440 schools (out of 1.52 lakh schools) on an average were not serving

meals, but after this system, the number has reduced to around 7715,

which is a drastic difference. (See Annexure 2 for comparative data of

July-September 2010 and December 2010 obtained through IVRS). This

data is verified by the headmasters of schools. Selecting a district on

random basis for comparison, for e.g., Ballia, the July-Sep report shows

638 schools where the meal was not cooked. The December report

shows less than half that number, i.e., 235 schools where the meal was

not cooked.

The overall impact has been that the number of schools in which meals

are not cooked has reduced substantially. The data received over the last

few months also indicates a trend wherein the number of schools not

serving meals is decreasing over time.

In schools where meals have not been cooked, it is possible to identify

these schools in order to ascertain the reasons for the same and request

for exception reports. For example, if a large number of schools were

not cooking meals, it is most likely indicative of some systemic problem

within. The IVRS conveys the situation to the DC or DM through weekly

reports. In such cases, it is unlikely that it will be let off without

questioning the concerned bodies, such as the panchayat or the school

headmasters, whose telephone numbers are available in the report. While

it is the responsibility of the panchayat (through the village Pradhan) to

implement MDMS, the system creates some level of pressure on the

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Pradhans to ensure that the meal is cooked. They are aware that daily

reports reach all the authorities, right from the BSA to the Govt. of India.

Consequently, it has brought in greater accountability of the village

panchayat.

The IVRS system has seen maximum acceptance from the teachers. The

teachers were vested with the duty of reporting non-compliance of the

scheme to the ABSA. Earlier, during the monitoring exercises, there have

been cases where the teachers have been suspended if the meal was not

cooked; for no fault of theirs. Although they might have reported the

matter to the ABSA, there would be no remedial action due to the heavy

workload of the ABSA. (Monitoring of MDMS is an additional responsibility

of the ABSA). For e.g., if a situation comes to light that a hundred

schools have not served the meal, then it casts a poor image of the ABSA,

who would most likely conceal the information. This practice of

concealing then moves up from the ABSA to the BSA/ district level. In the

IVRS, the information provided by the teachers is available up to the Govt.

level, thereby eliminating the scope for concealment or denial of

information.

However, creating acceptance for this system has had its share of

resistance as well. During the early stages, functionaries at the local

governance level (the ABSA, the pradhan), had alleged that the

information provided through this system was incorrect. MDMA also

wanted to ensure that no information distortion was occurring at the

data-base level. To set the record straight, a third party auditor has been

introduced. This audit is conducted on a random basis, which also

included cross-checking the data. It was found that the information

recorded was correct, thereby validating IVRS as a system functioning as

planned.

There is always a chance that the headmaster or teacher could key in the

wrong figure, perhaps even deliberately. In such cases, says Tripathi, “a

trend would be visible in due course, and remedial action could be

taken”.

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However, the system is yet not able to provide data from 100 per cent

schools. The reasons need to be ascertained. In the schools where meals

are not cooked, the records also indicate that it is not the same set of

schools where this happens.

In the earlier system, only quarterly reports were generated. In the

accounting procedures, the amount allocated as fund itself used to be

shown as expense incurred. But now there is sufficient data to cross

check the number of students availing meals (i.e., number of meals

cooked) with the amount of grain lifted and the conversion cost incurred,

thereby making it possible to calculate the total expense incurred. This

could then be cross-checked with the fund allocated.

VII. Conclusion and Recommendation

The successful functioning of the IVRS has enabled the creation of a cost-

effective and convenient mechanism, providing accurate figures for

planning and monitoring the MDMS. It has also set new trends in e-

governance, so useful and timely for welfare schemes across Uttar

Pradesh and the country. At the National Steering cum Monitoring

meeting held at New Delhi on 20.10.2010, a live demonstration of the

IVRS was provided to its members, along with a concise explanation of

the pros and cons of the system. Convinced about its functionality, the

National Infomatics Centre (NIC), GOI is now in the process of developing

such a model for all states based on the Uttar Pradesh experience.

In view of the above factors, it may be recommended that the IVRS could

be scaled up across various functions within the Education sector, and

also extrapolated to other sectors that are much in need of transparent

and timely tracking and monitoring systems.

VIII. The Way Ahead for the State

For the MDMA, it has been a deliberate decision to utilise and thereafter

boost this system one step at a time. Shri Amod Kumar, former Director

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of MDMA, says the challenge is in using this information for proper

planning. Some of the feedback received about the IVRS indicated

scepticism due to „over-information‟ that is being generated. However,

Kumar felt that since the costs are as low as 0.2% of the entire

expenditure, it is anyway worth having this system in place.

All efforts need to be made to obtain information from 100 per cent

schools.

At present, the system „pulls‟ or extracts only one kind of data, i.e.,

whether meals were served, and the number of children who have had

meals. In future, this system could extend to extracting other

information such as attendance of students and teachers.

MDMA is awaiting complete stabilisation of the system in order to

introduce other parameters such as codes for reasons why the meal was

not cooked. Although this was planned, it has been put on hold for the

time being.

At present, this information is being used purely for monitoring purposes

by the MDMA. The plan is to make the data available on the public

domain. The information could be made available to other stakeholders

through registration by paying a token registration fee. Such a system

could make the project self-sustaining and provide a successful „business

model‟ in future. While social activists or NGOs could use the

information, it would work as a social audit. This automatically creates a

mechanism of social audit and community ownership.

The bank accounts for the MDMS are now maintained at the school level

as per a Government Order. The accounts are being operated with the

signatures of the headmaster and the Pradhan, whereas earlier it used to

be signed by the pradhan and the panchayat sachiv. It is linked to Core

Banking Solutions (CBS), which enables tracking of withdrawals made for

each school. By comparing the amount of food grains lifted with the

number of children who have had meals that month, and further cross-

checking with bank withdrawals, it is possible to generate a complete

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country report. “As and when required, the government authorities too

could pick up the figures from the same site. Thus, the scheme will leave

no scope for bogus reporting”, reiterates Kumar.

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IX. Annexures

Annexure- 1: Transcript of the IVRS automated call

To obtain school enrolment:

On the first working day of every month, an automated call is made from the

number 88 086 11111 to obtain the school enrolment for that month.

Consider the call is being made to Shri Ram Aadhar Rawat Primary School,

Morna, Block Lambua, District Sultanpur. The call goes:

“Namaskar. Shri, Ram Aadhar Rawatji, this is a call from the office of the Mid Day

Meal Authority Office, Uttar Pradesh. We would like to verify your mobile

number. Your name is Ram Aadar Rawat, post is Headmaster, Primary School,

Morna, Block Lambua. If you would like this information to be repeated, please

press “1”. If the information is correct, please press “2”. If any part of this

information is incorrect, please press “3”.

…the call continues…

This call is from the office of the Mid Day Meal Authority, Uttar Pradesh. This call

is being made to obtain the number of students currently enrolled in your

school. Kindly provide the total enrolment number in your school by entering

the number on your phone, followed by # (hash).

(For example, if the total enrolment number is 95, then press 9, 5, followed by #

(hash).

The call goes: “You have entered the number ninety-five. To confirm, press “1”.

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Otherwise, press “2”.

If the correct figure has been entered, it is confirmed by pressing “1”. Otherwise

the correct figure may be entered.

To obtain number of students who have had lunch on a particular day:

Similarly, an automated call is made from the number 88 086 11111 to obtain

the number of students who have had lunch that day. The call goes:

“Namaskar. Shri, Ram Aadhar Rawatji, this is a call from the office of the Mid Day

Meal Authority Office, Uttar Pradesh. Please enter the number of students in

your school who have taken lunch today by pressing the digits between “0” and

“9”, followed by # (hash).

(For example, if 56 students had lunch that day, then press 5, 6, followed by #

(hash). This will be verified with the voice saying:

“You have entered fifty six. To confirm, press one, otherwise, press “2”. If the

number provided is correct, then press one. To change the number, press “2” to

re-enter the correct number”.

If the headmaster or teacher is unable to provide any of this information, or if

the headmaster or teacher does not get a call, s/he could give a missed call on

the same number. The call is returned within five minutes, and the headmaster

or teacher may enter the correct information. If a wrong figure has been entered

for some reason, a repeat call could be made on the same working day to the

number 88 086 11111, to provide the correct figure.

(Those schools which fall in the National Capital Region (NCR) may kindly add “0” before

dialling the number.)

However, if the headmaster or teacher is unable to provide the information (due

to being on leave, teaching/training, travelling, etc), then s/he needs to press *

(star) to the call.

The voice says, “Are you unavailable to provide the information today?” If yes,

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press “1”. Otherwise, press “2”. (If “1”, is pressed, the call goes to the teacher

next in the hierarchy from whom the information will be taken. If “2” is pressed,

the information may be entered.

For loss of mobile or change in mobile number: If the headmaster or teacher has

lost his/her mobile phone, or if there is a change in the mobile number, then a

call could be made on 88086 22222. The call disconnects after 3-4 rings.

There will be a return call within five minutes. The call goes: “Namaskar. this is

a call from the office of the Mid Day Meal Authority. Kindly enter you previous

mobile number by pressing the buttons on your phone. You will enter the

number 9415836524# (for e.g.).

This will be verified by the message “The number you have entered is nine-four-

one-five-eight-three-six-five-two-four. To confirm, press “1”. Otherwise press

“2”. Following this, the new number may be entered. This is verified and

becomes operational within two days.

1800 1800 666 is a toll free helpline to convey suggestions or feedback

regarding the mid-day meal scheme. The call centre executives are available to

take queries from 8 am to 4 pm on all working days. In case of a change in the

headmaster/teachers, or change in the address of the school, the updates may

also be provided through this number.

At the end of every month, the data is made available at the monthly meetings of

school headmasters for verification. The data is also available on the website

www.upmdm.in .

Note: These numbers are functional from 01.06.2010 onwards

The Daily Monitoring System is free of cost. To receive calls, to give missed calls on the

toll free number, you need not bear the expense.

Note: For some reason, if no lunch has been cooked in your school, then enter “0”

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followed by # (hash) to the automated call.

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Annexure -2: Sample Data

This is a sample of the data available on the hyperlink www.upmdm.in.

Report of Mid Day Meals availed from 20.12.2010 to 28.12.2010

No. Of Schools No. Of Students

PS UPS

Sr No.

* District * PS * UPS * Total * Data Received from (Average)

* Meal Not Served In (Out of received data) (Average)

* Enrollment ( Collection under progress )

* Meal Served for (Average)

* Enrollment ( Collection under progress )

* Meal Served for (Average)

UTTAR PRADESH 105092 45583 150675 99812 7715 14832420 6695098 2863698 2284902

1 AGRA 1885 808 2693 1896 84 241382 121083 49191 40721 2 ALIGARH 1753 765 2518 1693 33 232646 93819 28083 32385 3 ALLAHABAD 2405 1076 3481 2452 69 423220 180944 66067 60569 4 AMBEDKARNAGAR 1284 582 1866 1336 169 198169 86628 32706 35351 5 AURAIYA 1029 496 1525 1029 50 100010 48730 21753 22074 6 AZAMGARH 2206 1037 3243 2467 122 395815 216911 83842 73813 7 BADAUN 2076 757 2833 1765 95 326762 133578 63188 39769 8 BAGHPAT 491 186 677 545 4 62679 42329 10116 10563 9 BAHRAICH 2235 981 3216 2006 239 397119 131702 27838 35864 10 BALLIA 1938 637 2575 1677 235 302783 123631 54427 37490 11 BALRAMPUR 1257 665 1922 1126 165 184012 72773 25679 16333 12 BANDA 1323 639 1962 1331 137 219661 82841 44965 32094 13 BARABANKI 1951 778 2729 1844 96 262858 134324 72523 55810 14 BAREILLY 2016 649 2665 1640 384 269054 94780 46851 23579 15 BASTI 1561 685 2246 1558 97 199916 109426 56432 41099 16 BHADOHI(SR

Nagar) 646 366 1012 740 30 152146 55817 30517 25283

17 BIJNOR 1756 750 2506 1598 48 186229 89955 59643 31899 18 BULANDSHAHR 1648 841 2489 1321 51 197693 73533 41335 23812 19 CHANDAULI 988 499 1487 964 55 200901 78124 33791 32469 20 CHITRAKOOT 891 441 1332 945 22 122732 55961 31562 23144 21 CSM Nagar 1326 496 1822 1208 147 171252 90330 47240 29863 22 DEORIA 1732 737 2469 1482 104 264801 108026 47597 32907 23 ETAH 1224 549 1773 1231 88 137420 80421 39135 25700 24 FAIZABAD 1346 575 1921 1327 94 203434 85933 31174 30472 25 FARRUKHABAD 1169 608 1777 1192 331 164797 53489 36879 21167 26 FATEHPUR 1711 702 2413 1706 160 231943 110777 35845 38871 27 FIROZABAD 1492 602 2094 1337 213 136779 67605 30011 19259 28 G.B.Nagar 464 218 682 356 2 54362 21508 6096 6781 29 GHAZIPUR 1774 808 2582 1738 68 268235 159628 51049 47145 30 GHAZIYABAD 834 380 1214 719 116 121553 41369 15364 12635 31 GONDA 1888 887 2775 1875 314 318905 127044 51872 37243 32 GORAKHPUR 2020 788 2808 1766 101 222926 130581 54973 38437 33 HAMIRPUR 798 385 1183 759 28 107559 42488 24101 19149

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34 HARDOI 2577 1014 3591 2451 82 470608 196690 97853 76245 35 HATHRAS 957 454 1411 909 39 114034 50911 16109 18644 36 ITAWAH 1189 583 1772 947 151 103755 33649 24384 15079 37 J. P. NAGAR 1052 449 1501 1007 37 116257 55232 19114 16770 38 JALAUN 1259 586 1845 1294 45 140358 64412 24074 27781 39 JAUNPUR 2264 884 3148 2192 98 439184 206002 60156 58904 40 JHANSI 1164 540 1704 1243 8 164205 68049 33521 30597 41 KANNAUJ 1047 469 1516 1045 70 116843 62887 39851 24581 42 KANPUR DEHAT 1559 669 2228 1446 139 122003 64401 45101 24986 43 KANPUR NAGAR 1674 668 2342 1621 36 161366 90760 30718 35374 44 KASHIRAM NAGAR 920 460 1380 959 112 135509 63261 17983 17383 45 KAUSHAMBI 924 471 1395 1055 187 162291 67000 15408 15976 46 KUSHINAGAR 1804 824 2628 1916 136 288350 158840 52012 40567 47 LAKHIMPUR KHERI 2379 1123 3502 2367 36 421415 182591 87724 73442 48 LALITPUR 929 482 1411 881 69 150075 53051 32613 24324 49 LUCKNOW 1408 508 1916 1033 121 183783 54605 19812 17921 50 MAHOBA 667 353 1020 681 63 81050 37938 21895 15905 51 MAHRAJGANJ 1312 657 1969 1347 144 233484 103124 39015 31206 52 MAINPURI 1509 573 2082 1460 123 115407 84200 32974 29927 53 MATHURA 1257 582 1839 1152 85 109094 64844 31674 24032 54 MAU 1093 528 1621 1048 80 202744 70861 30658 29449 55 MEERUT 992 492 1484 968 48 105350 52915 17818 19150 56 MIRZAPUR 1487 579 2066 1454 68 262677 111115 37799 36290 57 MORADABAD 1963 852 2815 1638 101 243435 111776 53677 32659 58 MUZAFFARNAGAR 1395 648 2043 1198 217 173931 72946 37776 23065 59 PILIBHIT 1200 566 1766 1254 102 140944 77150 57496 33220 60 PRATAPGARH 1761 600 2361 1574 129 235545 121046 38751 34411 61 RAE BARELI 1320 521 1841 1168 176 199112 73339 37164 24912 62 RAMPUR 1282 560 1842 1290 60 174820 70929 20881 23046 63 SAHARANPUR 1381 587 1968 1484 76 165090 88254 34121 31723 64 SANT KABIR NAGAR 1008 439 1447 920 61 144936 63947 28032 20883 65 SHAHJAHANPUR 2333 889 3222 1790 137 337865 113279 54246 38748 66 SHRAWASTI 797 384 1181 717 175 95806 36286 25627 10851 67 SIDDHARTHNAGAR 1555 710 2265 1444 94 210686 119944 40731 33164 68 SITAPUR 2622 1111 3733 2584 160 447951 165752 58645 56516 69 SONBHADRA 1298 568 1866 1252 43 206895 91169 37434 33819 70 SULTANPUR 1451 609 2060 1449 81 171150 110940 52930 40990 71 UNNAO 2048 791 2839 1919 144 222619 123220 51306 43173 72 VARANASI 1138 427 1565 1026 31 182040 111695 54770 45439

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Status of Mid Day Meals availed from 01.07.2010 to 30.09.2010

No. Of Schools No. Of Students

PS UPS

Sr No.

* District * PS * UPS * Total * Data Received from (Average)

* Meal Not Served In (Out of received data) (Average)

* Enrollment ( Collection under progress )

* Meal Served for (Average)

* Enrollment ( Collection under progress )

* Meal Served for (Average)

UTTAR PRADESH 105092 45583 150675 97529 27440 14832420 4551986 2863698 1299747

1 AGRA 1885 808 2693 1675 419 241382 83518 49191 20823 2 ALIGARH 1753 765 2518 1647 474 232646 64064 28083 18217 3 ALLAHABAD 2405 1076 3481 2346 342 423220 136852 66067 38857 4 AMBEDKARNAGAR 1284 582 1866 1205 297 198169 60147 32706 18028 5 AURAIYA 1029 496 1525 993 300 100010 31519 21753 13515 6 AZAMGARH 2206 1037 3243 2224 876 395815 107350 83842 35726 7 BADAUN 2076 757 2833 2044 850 326762 91920 63188 21669 8 BAGHPAT 491 186 677 421 68 62679 27559 10116 4444 9 BAHRAICH 2235 981 3216 1825 782 397119 70442 27838 15840 10 BALLIA 1938 637 2575 1665 638 302783 78028 54427 20793 11 BALRAMPUR 1257 665 1922 1136 441 184012 48499 25679 7575 12 BANDA 1323 639 1962 1404 347 219661 67394 44965 21692 13 BARABANKI 1951 778 2729 1658 302 262858 86604 72523 25664 14 BAREILLY 2016 649 2665 1528 565 269054 69542 46851 12480 15 BASTI 1561 685 2246 1446 383 199916 69779 56432 21144 16 BHADOHI(SR

Nagar) 646 366 1012 743 170 152146 40614 30517 15991

17 BIJNOR 1756 750 2506 1834 525 186229 62562 59643 20078 18 BULANDSHAHR 1648 841 2489 1532 201 197693 71061 41335 20745 19 CHANDAULI 988 499 1487 949 198 200901 57742 33791 19240 20 CHITRAKOOT 891 441 1332 974 131 122732 49228 31562 17298 21 CSM Nagar 1326 496 1822 1272 283 171252 71889 47240 18000 22 DEORIA 1732 737 2469 1682 620 264801 78576 47597 22506 23 ETAH 1224 549 1773 1084 389 137420 44201 39135 12065 24 FAIZABAD 1346 575 1921 1188 161 203434 64924 31174 20786 25 FARRUKHABAD 1169 608 1777 1207 467 164797 43891 36879 15133 26 FATEHPUR 1711 702 2413 1717 295 231943 85551 35845 26002 27 FIROZABAD 1492 602 2094 1339 560 136779 45905 30011 11047 28 G.B.Nagar 464 218 682 350 36 54362 22074 6096 4429 29 GHAZIPUR 1774 808 2582 1367 473 268235 74506 51049 19424 30 GHAZIYABAD 834 380 1214 526 89 121553 26973 15364 6343 31 GONDA 1888 887 2775 1843 773 318905 81452 51872 18427 32 GORAKHPUR 2020 788 2808 1600 606 222926 76591 54973 18249 33 HAMIRPUR 798 385 1183 896 123 107559 41566 24101 15790 34 HARDOI 2577 1014 3591 2372 635 470608 131824 97853 40210 35 HATHRAS 957 454 1411 921 262 114034 33223 16109 11106 36 ITAWAH 1189 583 1772 1109 218 103755 36410 24384 15350 37 J. P. NAGAR 1052 449 1501 977 188 116257 41209 19114 8836 38 JALAUN 1259 586 1845 1182 348 140358 36455 24074 13916 39 JAUNPUR 2264 884 3148 2153 704 439184 125943 60156 32977 40 JHANSI 1164 540 1704 1182 157 164205 53114 33521 21099

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41 KANNAUJ 1047 469 1516 1098 194 116843 54940 39851 17142 42 KANPUR DEHAT 1559 669 2228 1168 250 122003 42119 45101 12079 43 KANPUR NAGAR 1674 668 2342 1635 177 161366 67339 30718 22985 44 KASHIRAM NAGAR 920 460 1380 782 405 135509 25298 17983 6527 45 KAUSHAMBI 924 471 1395 1012 253 162291 53383 15408 11137 46 KUSHINAGAR 1804 824 2628 1874 912 288350 78161 52012 18995 47 LAKHIMPUR KHERI 2379 1123 3502 2157 673 421415 104214 87724 33025 48 LALITPUR 929 482 1411 886 253 150075 40279 32613 16832 49 LUCKNOW 1408 508 1916 1154 238 183783 55472 19812 15878 50 MAHOBA 667 353 1020 631 175 81050 25802 21895 9372 51 MAHRAJGANJ 1312 657 1969 1350 624 233484 57105 39015 17172 52 MAINPURI 1509 573 2082 1492 331 115407 62152 32974 19708 53 MATHURA 1257 582 1839 1046 196 109094 50749 31674 15139 54 MAU 1093 528 1621 1079 191 202744 60484 30658 21472 55 MEERUT 992 492 1484 874 225 105350 35859 17818 11360 56 MIRZAPUR 1487 579 2066 1516 347 262677 83171 37799 21923 57 MORADABAD

Processing...

1963 852 2815 1713 566 243435 73000 53677 16601

58 MUZAFFARNAGAR 1395 648 2043 1242 250 173931 70879 37776 17866 59 PILIBHIT 1200 566 1766 1303 411 140944 49054 57496 16467 60 PRATAPGARH 1761 600 2361 1595 367 235545 86488 38751 21033 61 RAE BARELI 1320 521 1841 1284 271 199112 65080 37164 21332 62 RAMPUR 1282 560 1842 1277 353 174820 48278 20881 10556 63 SAHARANPUR 1381 587 1968 1504 333 165090 63260 34121 18991 64 SANT KABIR

NAGAR 1008 439 1447 951 471 144936 31664 28032 8561

65 SHAHJAHANPUR 2333 889 3222 1641 443 337865 75938 54246 18069 66 SHRAWASTI 797 384 1181 694 357 95806 20665 25627 3472 67 SIDDHARTHNAGAR 1555 710 2265 1403 675 210686 54556 40731 12628 68 SITAPUR 2622 1111 3733 2407 783 447951 109387 58645 29506 69 SONBHADRA 1298 568 1866 1193 168 206895 67583 37434 21339 70 SULTANPUR 1451 609 2060 1431 409 171150 69656 52930 21559 71 UNNAO 2048 791 2839 2023 338 222619 93481 51306 27403 72 VARANASI 1138 427 1565 898 105 182040 85789 54770 22104

This is a password-protected site. Once the log in and password are

entered, one can view the district details as given below. One needs to

enter the dates for which data is required. By clicking on the district

name, one can view details for each block in that district. By clicking on

the name of the required block, one can view the details of each school,

both urban and rural.