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Studies on E Governance in India using

Data Mining Perspective
Ms. Sonali Agarwal, and Prof. G.N. Pandey

Abstract— The fast expansion, exploitation and propagation of the innovative and promising Information and Communication Technologies (ICTs) indicate
new opportunities for growth and development. Data Mining is a well established approach of discovering knowledge from databases for the purpose of
Knowledge Management. There is large number of data and information generated and collected by the different levels of governments. In case of gov-
ernment, proper decision making is important to better utilization of all resources. Data Mining could help administrators to extract valuable knowledge and
practices out of this voluminous data, which can be used to obtained knowledge and practices for strategically reducing costs and increasing organization
expansion opportunities and also detect fraud, waste and abuse. The present investigation taken Education Data related with primary education in order to
analyze status of primary education in Allahabad and in Uttar Pradesh, India. Clustering and Classification methods are used to find out similarity or dissi-
milarity among various districts of Uttar Pradesh. This will create groups of districts as clusters so that these districts may further treated together under
one policy. Classification method is based on reported Gross Enrollment Ratio (GER). In this method some unusual classification of district highlighted
that the Data Mining could also establish the impact of migration from one district to another when all the students are given unique identification through
social security number.

Index Terms—Information and Communication Technologies, Knowledge Management, Data Mining, Clustering, Classification

——————————  ——————————
(i) Efficient methods for capturing, storing and han-
1 INTRODUCTION dling government data collected from various re-

D ata Mining is a process of Knowledge Discovery in-
cludes methods used to recognize, generate, represent
and distribute knowledge for better utilisation of any
system. There is large number of data and information gen-
erated and collected by the different levels of governments.
In case of government, proper decision making is important
to better utilization of all resources. Data Mining could help framework
administrators to extract valuable knowledge and practices
out of this voluminous data, which can be used to obtained
knowledge and practices for strategically reducing costs and
increasing organization expansion opportunities and also
detect fraud, waste and exploitation.
The research work is aimed to represent the potential of
data mining in the context of smart techniques of E Gover-
nance. Data Mining provides efficient techniques for gov-
ernment agencies to analyze data quickly and with lesser
economic efforts [1]. The data extraction process generates
interesting hidden patterns. The discovered hidden patterns
enable the government systems in making better decisions
and having a more advanced plan in serving the citizens [8].
Here we are representing an E Governance Model based on
Data Mining and Data Warehousing to facilitate
————————————————
 Ms. Sonali Agarwal is with the Indian Institute of Information Technolo-
gy, Allahabad, U.P., India
 Prof. G.N. Pandey is with the Indian Institute of Information Technology,
Allahabad, U.P., India
sources over a period of time.
(ii) Efficient Knowledge Management for improved in-
ternal processes, government policies and programs
on the basis of historical data stored in its databases.
The present work proposes an E Governance model
based on Data Mining and Data Warehousing
techniques which may be efficiently used by the government
at all its administrative levels Nation-
al/State/District/Block).The proposed Model serves all
possible aspects of E Governance with the help of four basic
building blocks:
 Administrative Block
 Technical Know How Block
 Service Block
 Stakeholder Block
2 RELETED WORK
There is an extensive range of Data Warehousing and Data
Mining applications in government’s regulatory, develop-
mental and social welfare organization. The followings are
some examples reported in different literatures.
The project Total Information Awareness (TIA) was
launched by the US government after the terrorist attack of
9/11. The objective of Total Information Awareness (TIA)
was to search large data and determine associations and pat-
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terns related with terrorist activities. The project conducted
discovery of associations among transactions such as work
permits, credit card, airline tickets, passports, visas, rental
cars, gun purchases, driver’s license and events such as ar-
rest or doubtful activities [17][15].
CAPPS is known as Computer Assisted Passenger Pre-
Screening System. It is a prescreening system initiated by the
Department of Homeland Security US. It is implemented to
check all airline passengers against a database of commer-
cially available information. After checking it provides a risk
color or status to each passenger. CAPPS collect information
provided by the passenger for example Paasenger’s name,
permanent address, contact number etc. These records are
then given to commercial data providers for assessment of
the validity of the passenger and passenger’s correlation
with other events. The commercial data provider would
assign a numerical score back to the owning system indicat-
ing a particular risk level. The passengers having “green”
score is considered as normal and safe passenger. The pas-
sengers having “yellow” score then they would have to face
second level screening test. The passengers having “red”
score is considered as high risk passenger and high risk pas-
sengers may not be allowed for traveling and they must be
further enquired about their identity and purpose of travel-
ling [9].
In May 2004, a report on federal data mining activities in-
dicates that US government agencies have very well adopted
the data mining practices in e governance. Currently there
are 199 data mining projects ongoing in various stages. Stu-
dies indicates that the government is also running some un-
disclosed data mining projects for example national security
aagency's eavesdropping project and state level security
project matrix [10].
There are several research work published in the field of
model-building phase of the Data Mining process. A paper
based on Data Mining application for income tax department
discusses how to build a Data Mining algorithm centered
application for the regulation of different government activi-
ties [13]. Main concern of this paper includes architecture of
Data Mining based application, working methodology and
the integration of knowledge of domain experts.
A Data Mining tool iHealth was developed by a health
organization CSIRO. It provides a web based interface for
Data Mining and Data analyses tool for large health related
databases. The tool provides various clustering and classifi-
cation methods to identify patients having certain specific
profiles. The patients’ profile could be visualized by using
various visualization techniques [6].
A paper presented a Data Mining based approach to
study about student performance and dropout rate [11]. The
method used Clustering and Decision Rule Data Mining
techniques to identify collection of clusters, which have been
helpful to understand the nature of data. A Data Mining
based approach is discovered to classify the selected custom-
ers into clusters using Recency, Frequency, Monetary value
(RFM) model to identify high-profit, gold customers. Associ-
35
ation rules may establish the similarity, difference between
customer’s behaviors [6].
3 BASIC BUILDING BLOCK OF PROPOSED E
GOVERNANCE MODEL
The proposed E Governance model covers all important as-
pect of E Governance in a single model. There are four Basic
Building Blocks of proposed E Governance Model. The low-
est block is the Administration Block, which regulates the
overall function of any country through efficient govern-
ment.
Fig. 1: Basic Building block of the Proposed E Governance Model
The overall regulation of government bodies may be car-
ried out by using appropriate Technical know how. The
Technical know how block includes computerization of ma-
nual processes, commonly agreed technological standard,
Database related applications and easy access of information.
The third block is Service Block, which includes all available
operations of the E Governance. It provides an interface be-
tween user and government system. The upper block is
Stakeholder Block, which has various categories of users
working with the system. The user categories may be a Citi-
zen, Business organization or any Government organization
[13].
3.1 Module 1: Administration
Administration is a way of management of any working sys-
tem supervised by an administrator. In any democratic sys-
tem the administration may be governed by a structured
body name as government. The term Governance is basically
the responsibility of a Government which includes each and
every processes performed by the government body. The
main activity of the government is to controll the working of
different departments for exmaple Finance, Health, Educa-
tion, Agriculture, Employment etc. All these activities are
now maintained efficiently by using ICT. The transformation
of the working from conventional methods to modern me-
thods of Information Technology (IT) is now known as E
Government. The use of ICT in government activities have
given a new idea of governance knows as E Governance.
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3.1.1 Salient features of the proposed model
The purpose of E Governance is to establishing good gover-
nance and have seamless coordination between government
authorities, public and business parties. The utilization of
ICT may join all three different sectors and support devel-
opment and management. Therefore, following are the sa-
lient features of the proposed model.
TABLE 1
SALIENT FEATURES OF THE PROPOSED MODEL
1. To provide proper information and awareness to the
citizen about the political practices and choices available.
2. To provide online services and active participation for
different citizen services.
3. To utilize ICT in government functions, that provides
quick and well-organized communication with the
people, business and other agencies.
4. To provide better decision-making through greater de-
centralization of governance [4].
The proposed model is based on ICT, which may reform
organizational structures in both centralized as well as de-
centralized manner. These approaches of E Government
have their own set of advantages and disadvantages.
Centralized Model
Centralize government initiatives are favorable as portals
and services to reduce cost and integration issues. Centralize
government initiatives may share technical, financial and
human resources. A Single portal access is very useful for
any end user because all the information may be centrally
available here. There are following features of Centralized E
Governance model.
 All government process based on ICTs are centra-
lized in one organizational unit.
 Generally limited Infrastructural and set up costs
but less effective.
36
 Centralized E Governance models have a single in-
terface for its different users and these models could
be easily enforced.
Decentralized Model
Decentralized model is required at lower level so that vari-
ous projects can be handled saparatelty from initiation to
executation [3]. There are following features of Decentralized
E Governance model.
 All government functions could be distributed
among various divisions or organizations.
 Generally has a high coordination cost.
3.1.2 State level Model of E Governance
The State level model is based on the combination of both
centralized and decentralized approaches. In State level,
State government becomes the main coordinator of the
project and lower government offices with their departments
become the partners of that project. Figure 1.2 describes ho-
rizontal and vertical interconnections of E Governance.
Fig.2 : Horizontal and Vertical interconnection for E Governance
 Certain important decisions are jointly made and
then standardized across the various levels.
 Responsibilities as well as capabilities are decentra-
lized at different government departments/levels,
with infrastructure and output sharing across the
State as a system.
 Generally, high E Governance set up costs but more
responsive to stakeholder needs. Higher level com-
mittees are formed to manage various Government
activities. These committees have authority to con-
trol the functioning of large area.
Intra-department or horizontal and vertical collaborations
are very essential for success of any E Governance project. It
is very necessary to perform governance functions, share
information and deliver services to all stakeholders. These
collaborations depend on issues like what are the different
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types of intra- department collaborations exist in E Gover- 3.4 Module 4 Stakeholder Block
nance and why intra- department collaborations are impor- Stakeholder is an individual person, group of persons or a
tant [4]. community having common area of interest and commonly
affected by any system. Here E Governances has a wide rage
3.2 Module 2: Technical Know How of stakeholders. The main groups are identified in 3 parts.
For E Governance, there are many applications need to be
automated. Various departments seek computerization and
other technological transformation of their working strate-
gies. Now it is necessary to conceptualize the whole ap-
proach and develop a standard framework and protocols for
the regulation of all E Governance activities. The proposed
Model uses Data Mining and Data Warehousing for improv-
ing the service performance of the E Governance system.

3.2.1 Case Study: Data Mining in Department of

Education
Education related organizations are major application area
for Data Mining since it collect large amount of data on stu-
dents enrollment, courses taught, students academic record
history etc. The data collection trend is also increasing be-
cause of the availability and popularity of courses taught.
Today many institutions also have websites where students
may study online. Educational Data Mining may help identi-
fy student academic performance, discover student’s beha-
vior regarding selection of subjects. These patterns and
trends may further improve the quality of education, achieve
better student admission and satisfaction, and enhance good
academic practice and policies.

Data Mining algorithms are used to distinguish different set

of data by using the test data. For example an algorithm
identifies characteristics that distinguish students who took
out a particular kind of study loan from those who did not.
Finally, it predicts rules regarding issuance of study loan.
The rule is based on the attributes of the previous good stu-
dents who are successfully paid their loans. These rules are
further used to recognize such students on the remaining of
the database.
In the same way, various algorithms are implemented to
convert the database into clusters of students with several
similar attributes and this may certainly reveal interesting
and unexpected patterns. The patterns of the clusters are
further interpreted by the experts, in collaboration with insti-
tutions personnel.
Fig.3: Data Mining in different Government Department by using
Distributed Databases
3.4.1 Citizen
Citizen is associated with the E Governance by using Gov-
ernment to Citizen (G2C) interface. Government to Citizen
(G2C) interface is an online interaction between government
and private individuals.
3.4.2 Business
Business is associated with the E Governance by using Gov-
ernment to Business (G2B) interface. Government to Business
(G2B) interface is important because various trades and
business related transactions are required by the government
for the regulatory purpose.

3.3 Module 3 : Service Block 3.4.3 Government

In the service block, services of E Governance as end results are
provides to the citizens for betterment of their lives. It also pro-
vides an interface so that a common citizen may participate
in decision making processes. The Service Block also helpful
to simplify complex government process in which too many
offices and manpower required. The final center of attention
will be on efficient and well-organized delivery of govern-
ment services [14]. The commonly used services are informa-
tion access, making payments, submitting complaints and
downloading forms for some purpose.
Various governments departments are associated with one
other by the means of E Governance by using Government to
Government (G2G) interface. It provides online interaction of
different levels of government. The objective of G2G is to
build new relationships between different departments of
government. These relationships help collaboration between
levels of government, and reform state and local govern-
ments to convey better services to the citizen.
4 Data Mining Tool
For the idea of testing the framework, it is necessary to pro-
vide at least one data mining tool to work with. The present
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investigation adopted WEKA as Data Mining Tool [3].
It contains tools for a whole range of data mining tasks like
Data pre-processing, Classification, Clustering, Association
and Visualization [4]. It is Open Source Software, has stable
releases, is well documented. It is experimental in nature and
it offers the ability to be extended. It provides an excellent
graphical user interface. It takes database in ARFF or CSV
formats [5].
Fig. 4 : Different Views of WEKA Tool
4.1 Data Mining by using Data Visualization
Data mining by using Data Visualization is a method in
which various trends in databases may be visualized by us-
ing graphs and charts [18]. Following issues are analyzed by
using Data Visualization.
The analysis indicates that there is large difference in
number of primary schools and upper primary schools.
There must be one Upper Primary School for two Primary
School. But it is not actually present.
This will also obvious that, for maintaining the ratio of
number of primary school to number of upper primary
school as two, more number of upper primary school will
have to be opened. The data further indicates that the drop
out after primary school is or than the expected range. It is
apparent from the data mining that the growth in number of
primary school has not been uniform. This main reason may
be may the duplication of records. So, in order to remove any
possibility in duplication of data, allotment of social security
number to each citizen or student is very important.
4.2 Data Mining by using Clustering
Clustering is a Data Mining approach which creates clusters
of data items within a data set. Clusters are closed occur-
rence of data items under the consideration of certain para-
meters [19]. These clusters further represent similar groups.
In this study raw data of education for Uttar Pradesh, India
has been taken. The database has 70 instances, which
represents all 70 districts of Uttar Pradesh. In the proposed
approach various districts may be clustered according to
their similarity. These groups of districts as clusters may fur-
38
ther treated together under one policy.
Fig. 5: Comparison between number of Primary and Upper Primary
School
Fig.6: Clusters based on number of Enrollment in Govt. and Private
Schools
The Data Mining approach based on clustering clearly
indicates significant variations between clusters of districts
from another cluster. However the cluster approach could be
sharpen when data for each district- rural, urban; category
wise-general, OBC, SC,ST, handicapped-visually impaired,
hearing impaired, mentally retarded are classified on the
basis of social security number to have qualitative approach
to entire planning and implementation of “Education for all”
program.
Decision tree and IF THAN Rules are used for Classifica-
tion [78]. In this study various Districts are classified accord-
ing to their Literacy Rate, Growth Rate and available re-
sources. The above classification is based on reported Gross
Enrollment Ratio (GER). However, Mahoba, Ambedkar Na-
gar, Lalitpur, Pratapgarh, Barabanki is placed in very good
class where Gross Enrollment Ratio (GER) is between 101 to
118.99 and Lucknow, Varanasi, Meerut, Gaziabad, Allaha-
bad, Gautam Buddha Nagar find a place in very poor catego-
ry where Gross Enrollment Ratio (GER) is in between 45 to
60.99. It appears that the above position is due to migration
of learners from one district to another district, where they
find better educational facilities. The Data Mining could also
establish the impact of migration from one district to another
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when all the students are given unique identification
through social security number. The Data in Data Warehouse
based on social security number will eliminate any scope for
duplication and obviously the Data Warehouse developed
on the basis of social security number will be more reliable
and dependable for strategic planning for improving the
percentage education in primary sector through “Education
for All” scheme.
Fig.7: Categorization of district according to Gross Enrollment Ratio by
using Decision Tree
5 Conclusion
Indian scenario is converting now in the form of an efficient,
accountable and transparent society. It is essential that all
government functions use ICTs to provide better interfaces
or interactions for the public at state and central level. It in-
dicates that appropriate software has to be developed which
includes common practices related with government func-
tions. Data Warehousing and Data Mining has been estab-
lished to be an excellent option for speeding up reporting
and integrating data from various department of any gov-
ernment.
The use of Data Mining in government department
presents several potential advantages for better administra-
tion, including timely access to evaluate data. Different de-
partments may quickly identify troublesome trends in its
functions and evaluate why they are occurring.The various
departments may associate this information with trends in
their future policies.
The use of Knowledge Discovery in Databases allows an
individual department to use this information in making
appropriate decisions and enhance the working methodolo-
gies. This, unquestionably, translates into increased efficien-
cy, higher progress rates, and economical society.
Along with the development of the relatively new E Go-
vernance Model based on Data Mining and Data Warehous-
ing, it is also important to determine multiple rules and poli-
cies for future implementation and better administration
39
which is based on experiences as well as quicker data analy-
sis methods.
The study shows that in top 20 competitive nations in
education, Sweden, Japan, USA, Norway and Canada are in
very good positions. All these countries are using Data Min-
ing techniques for studying, monitoring and evaluating dif-
ferent ongoing projects for the development of future stra-
tegic planning. Previously it was understood that the coun-
tries having better education level were also having better
GDP factor. But, recent studies have found that increases in
educational achievements are not linked to the economic
growth. It is also found that the primary level of education is
not going to affect on economic growth of the country.
The importance of Data Warehouse and effective Data
Mining should be obvious especially when there is delay
practically in all the developmental activities which general-
ly fail in achieving the target as per schedule. The Data
Warehouse and Data Mining technique will have to be
rooted through dynamic process to ensure implementation
as per schedule. The Data Warehouse and Data Mining will
also ensure the efficacy of monitoring, control and evalua-
tion, as integrating tool to achieve the target. The frequency,
intensity, sensitivity of monitoring and control will have to
be in dynamic mode all the time to ensure completion of the
task as per targeted schedule.
In fact Data Mining with Data Warehousing should be an
ongoing process. It should be integrated with strategic futu-
ristic planning of the entire government. The analysis
through Data Mining would clearly establish the strong and
weak areas of planning and implementation of the whole
government process. However, it would take some time to
develop appropriate Data Warehouse of the past data to car-
ry out qualitative analysis on the basis of Data Mining tech-
niques.
The entire process of Data Warehouse development for
any application may be based on the basis of unique identifi-
cation of critical species, i.e., the citizen of the nation with no
duplication of the process. Similarly, since district is the cen-
ter of implementation, all the development action, regulatory
function of various departments, as well as social welfare
activities should be quantitatively associated with the unique
identification with each development activities so that all the
developmental activities are completed as per targeted date
for the utilization by their stakeholders.
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Sonali Agarwal is a lecturer in Indian Institute of Information Techology,

Allahabad, India. She received her bachelor Degree in Electrical Engi-
neering in 1997 at Bhilai Institute of Technology, India and her Masters
Degree in Computer Science at the Motilal Nehru National Institute of
technology, Allahabad, India in 2000. Her research interests include
Data Mining, Data Warehousing, E Governance, Knowledge Manage-
ment and Support Vector Machine.

G. N. Pandey is Adjunct professor in Indian Institute of Information

Techology, Allahabad, India. He received his bachelor degree in Chemi-
cal Engineering in 1962 at Banaras Hindu University, Varanasi, India and
his Masters Degree at Indian Institute of Technology, Kharagpur, India in
1963. He received his Doctoral degree in 1966 at Banaras Hindu Uni-