Cloud Telephony and IVRS Based Daily Monitoring System (DMS) for Mid-day Meal Scheme

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Cover photo courtesy: Mid Day Meal Authority, Uttar Pradesh

This initiative of Mid Day Meal Authority, UP was documented by UNICEF Office for Uttar Pradesh in December, 2010 2|Page

Acknowledgement

Acknowledgement

Lack of resources, control and extensive turnaround times has always plagued the MIS of large scale government operations. Though e-governance has progressed a lot, the scenario was largely the same for Mid Day Meal Scheme (MDMS) also. Information for the number of children availing meals was available district-wise but when decision making was required on different aspects of the scheme it was not possible to segregate the information below district level and the time-lag was a major hurdle, since the periodicity of this information was quarterly or at best monthly. The Daily Monitoring System (DMS) is a solution to these impediments. Be it accurate sampling, real time information snapshots or even analysis generation, the DMS provides all these functions within a framework that enables communication between the lowest points of data collection and the highest levels of management in the government. Interactive Voice Response System (IVRS) for monitoring Mid Day Meal Scheme (MDMS) in Uttar Pradesh, India is a unique process innovation with no parallel anywhere in the world. The system tracks the number of schools that serve / did not serve a mid day meal on any particular day as well as children who had lunch in the school on the prescribed working days. This document is an attempt to try and capture the process that was adopted to start this initiative. It is hoped that this document will help those who wish to replicate it as well as those who wish to learn more about it. Finally, we wish to thank those people who have been involved in making this a success, especially Shri. Amod Kumar, IAS, former Director, MDMA, UP who initiated this monitoring system in the state. We would like to thank all the officers and employees of MDMA who have contributed in making this initiative a success. We would also like to place on record thanks to Dr. Rubina Maiti, Education Officer, UNICEF, UP who supported in getting this process documentation done. December, 2010

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Contents Acknowledgement
I. Executive Summary II. Background III. What is IVRS? IV. The Process of IVRS V. The Situation Before and After VI. Impact of IVRS VII. Conclusion and Recommendations VIII. The Way Ahead for the State IX. Annexure

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I. II.

Executive Summary

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 decisionmaker. This system has been successfully operationalized 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 worlds 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 accountability and transparency, primarily because data is available almost immediately. Upon stabilization 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.
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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 (JRM) of the Government of India was held in February 2010. The JRM comprised of: 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 The team 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
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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:

A hungry child is less likely to attend school regularly. Hunger drains them of their will and ability to learnchronic 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/AIE1centres. 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 (NPNSPE) 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
1

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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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 menu prepared in accordance with this requirement is as follows:

Day of the week Monday Tuesday Wednesday Thursday Friday Saturday

Menu Roti sabji with soyabean or dal ki bari with namkeen dalia Rice sabji with dal or chawal sambhar Khadi chawal or kheer Roti, vegetable, dal or namkeen dalia Tehri 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
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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. 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 No. of Schools Enrolled Students Students availing MDM 1.08 Lac 158.65 Lac 102.03 Lac Upper Primary 0.44 Lac 44.80 Lac 35.24 Lac Total 1.52 Lac 203.45 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 NPNSPE, 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 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:
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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 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.

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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 timing and make reservations, its use in monitoring a scheme on such a large scale was a new and unique concept. .

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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 computergenerated 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. This mechanism is illustrated through the diagram below:

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

OB D
Information through IVR through IVR Acknowledgement School Virtual Number(s)/ Server

MIS Application & DSS

Internet

- Registration - Daily Attendance - Confirmation

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

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which information is collected, processed and transmitted to the relevant website. At Level One, an outbound call is made from the centres 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.

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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. 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)
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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 autogenerated 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 schools within a two-hour time frame, 60 PRI (Primary Rate Interface)2 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.

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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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 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 eliminates tasks of reimbursing and auditing such telephone expenses.
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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.

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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 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
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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 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. 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
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Conclusion and Recommendations

the conversion cost incurred, thereby making it possible to calculate the total expense incurred. This could then be cross-checked with the fund allocated.

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.

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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 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 selfsustaining 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 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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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. 1. Otherwise, press 2. To confirm, press

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
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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, 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-fiveeight-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

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days. 1800 1800 666 is a toll free helpline to convey suggestions or feedback regarding the midday 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 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 Sr * District No. * PS No. Of Students PS UPS * UPS * Total * Data * Meal * * Meal * * Meal Received Not EnrollmentServed EnrollmentServed for from Served In ( for ( (Average) (Average)(Out of Collection (Average) Collection received under under data) progress ) progress ) (Average) 10509245583 15067599812 7715 14832420 6695098 2863698 2284902

UTTAR PRADESH

1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 29 30 31 32 33

AGRA ALIGARH ALLAHABAD AMBEDKARNAGAR AURAIYA AZAMGARH BADAUN BAGHPAT BAHRAICH BALLIA BALRAMPUR BANDA BARABANKI BAREILLY BASTI BHADOHI(SR Nagar) BIJNOR BULANDSHAHR CHANDAULI CHITRAKOOT CSM Nagar DEORIA ETAH FAIZABAD FARRUKHABAD FATEHPUR FIROZABAD G.B.Nagar GHAZIPUR GHAZIYABAD GONDA GORAKHPUR HAMIRPUR

1885 1753 2405 1284 1029 2206 2076 491 2235 1938 1257 1323 1951 2016 1561 646 1756 1648 988 891 1326 1732 1224 1346 1169 1711 1492 464 1774 834 1888 2020 798

808 2693 765 2518 1076 3481 582 1866 496 1525 1037 3243 757 2833 186 677 981 3216 637 2575 665 1922 639 1962 778 2729 649 2665 685 2246 366 1012 750 841 499 441 496 737 549 575 608 702 602 218 808 380 887 788 385 2506 2489 1487 1332 1822 2469 1773 1921 1777 2413 2094 682 2582 1214 2775 2808 1183

1896 1693 2452 1336 1029 2467 1765 545 2006 1677 1126 1331 1844 1640 1558 740 1598 1321 964 945 1208 1482 1231 1327 1192 1706 1337 356 1738 719 1875 1766 759

84 33 69 169 50 122 95 4 239 235 165 137 96 384 97 30 48 51 55 22 147 104 88 94 331 160 213 2 68 116 314 101 28

241382 232646 423220 198169 100010 395815 326762 62679 397119 302783 184012 219661 262858 269054 199916 152146 186229 197693 200901 122732 171252 264801 137420 203434 164797 231943 136779 54362 268235 121553 318905 222926 107559

121083 93819 180944 86628 48730 216911 133578 42329 131702 123631 72773 82841 134324 94780 109426 55817 89955 73533 78124 55961 90330 108026 80421 85933 53489 110777 67605 21508 159628 41369 127044 130581 42488

49191 28083 66067 32706 21753 83842 63188 10116 27838 54427 25679 44965 72523 46851 56432 30517 59643 41335 33791 31562 47240 47597 39135 31174 36879 35845 30011 6096 51049 15364 51872 54973 24101

40721 32385 60569 35351 22074 73813 39769 10563 35864 37490 16333 32094 55810 23579 41099 25283 31899 23812 32469 23144 29863 32907 25700 30472 21167 38871 19259 6781 47145 12635 37243 38437 19149

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34 35 36 37 38 39 40 41 42 43 44 45 46 47 48 49 50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72

HARDOI 2577 HATHRAS 957 ITAWAH 1189 J. P. NAGAR 1052 JALAUN 1259 JAUNPUR 2264 JHANSI 1164 KANNAUJ 1047 KANPUR DEHAT 1559 KANPUR NAGAR 1674 KASHIRAM NAGAR 920 KAUSHAMBI 924 KUSHINAGAR 1804 LAKHIMPUR KHERI 2379 LALITPUR 929 LUCKNOW 1408 MAHOBA 667 MAHRAJGANJ 1312 MAINPURI 1509 MATHURA 1257 MAU 1093 MEERUT 992 MIRZAPUR 1487 MORADABAD 1963 MUZAFFARNAGAR 1395 PILIBHIT 1200 PRATAPGARH 1761 RAE BARELI 1320 RAMPUR 1282 SAHARANPUR 1381 SANT KABIR NAGAR 1008 SHAHJAHANPUR 2333 SHRAWASTI 797 SIDDHARTHNAGAR 1555 SITAPUR 2622 SONBHADRA 1298 SULTANPUR 1451 UNNAO 2048 VARANASI 1138

1014 3591 454 1411 583 1772 449 1501 586 1845 884 3148 540 1704 469 1516 669 2228 668 2342 460 1380 471 1395 824 2628 1123 3502 482 1411 508 1916 353 1020 657 1969 573 2082 582 1839 528 1621 492 1484 579 2066 852 2815 648 2043 566 1766 600 2361 521 1841 560 1842 587 1968 439 1447 889 3222 384 1181 710 2265 1111 3733 568 1866 609 2060 791 2839 427 1565

2451 909 947 1007 1294 2192 1243 1045 1446 1621 959 1055 1916 2367 881 1033 681 1347 1460 1152 1048 968 1454 1638 1198 1254 1574 1168 1290 1484 920 1790 717 1444 2584 1252 1449 1919 1026

82 39 151 37 45 98 8 70 139 36 112 187 136 36 69 121 63 144 123 85 80 48 68 101 217 102 129 176 60 76 61 137 175 94 160 43 81 144 31

470608 114034 103755 116257 140358 439184 164205 116843 122003 161366 135509 162291 288350 421415 150075 183783 81050 233484 115407 109094 202744 105350 262677 243435 173931 140944 235545 199112 174820 165090 144936 337865 95806 210686 447951 206895 171150 222619 182040

196690 50911 33649 55232 64412 206002 68049 62887 64401 90760 63261 67000 158840 182591 53051 54605 37938 103124 84200 64844 70861 52915 111115 111776 72946 77150 121046 73339 70929 88254 63947 113279 36286 119944 165752 91169 110940 123220 111695

97853 16109 24384 19114 24074 60156 33521 39851 45101 30718 17983 15408 52012 87724 32613 19812 21895 39015 32974 31674 30658 17818 37799 53677 37776 57496 38751 37164 20881 34121 28032 54246 25627 40731 58645 37434 52930 51306 54770

76245 18644 15079 16770 27781 58904 30597 24581 24986 35374 17383 15976 40567 73442 24324 17921 15905 31206 29927 24032 29449 19150 36290 32659 23065 33220 34411 24912 23046 31723 20883 38748 10851 33164 56516 33819 40990 43173 45439

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Status of Mid Day Meals availed from 01.07.2010 to 30.09.2010

No. Of Schools Sr * District No. * PS No. Of Students PS UPS * UPS * Total * Data * Meal * * Meal * * Meal Received Not Enrollment Served EnrollmentServed from Served In ( for ( for (Average)(Out of Collection (Average)Collection (Average) received under under data) progress ) progress ) (Average) 1050924558315067597529 27440 14832420 4551986 2863698 1299747

UTTAR PRADESH

1 AGRA 2 ALIGARH 3 ALLAHABAD 4 AMBEDKARNAGAR 5 AURAIYA 6 AZAMGARH 7 BADAUN 8 BAGHPAT 9 BAHRAICH 10 BALLIA 11 BALRAMPUR 12 BANDA 13 BARABANKI 14 BAREILLY 15 BASTI 16 BHADOHI(SR Nagar) 17 BIJNOR 18 BULANDSHAHR 19 CHANDAULI 20 CHITRAKOOT 21 CSM Nagar 22 DEORIA 23 ETAH 24 FAIZABAD 25 FARRUKHABAD 26 FATEHPUR 27 FIROZABAD 28 G.B.Nagar 29 GHAZIPUR 30 GHAZIYABAD 31 GONDA 32 GORAKHPUR 33 HAMIRPUR 34 HARDOI 35 HATHRAS 36 ITAWAH 37 J. P. NAGAR 38 JALAUN 39 JAUNPUR 40 JHANSI

1885 1753 2405 1284 1029 2206 2076 491 2235 1938 1257 1323 1951 2016 1561 646 1756 1648 988 891 1326 1732 1224 1346 1169 1711 1492 464 1774 834 1888 2020 798 2577 957 1189 1052 1259 2264 1164

808 2693 765 2518 1076 3481 582 1866 496 1525 1037 3243 757 2833 186 677 981 3216 637 2575 665 1922 639 1962 778 2729 649 2665 685 2246 366 1012 750 2506 841 2489 499 1487 441 1332 496 1822 737 2469 549 1773 575 1921 608 1777 702 2413 602 2094 218 682 808 2582 380 1214 887 2775 788 2808 385 1183 1014 3591 454 1411 583 1772 449 1501 586 1845 884 3148 540 1704

1675 1647 2346 1205 993 2224 2044 421 1825 1665 1136 1404 1658 1528 1446 743 1834 1532 949 974 1272 1682 1084 1188 1207 1717 1339 350 1367 526 1843 1600 896 2372 921 1109 977 1182 2153 1182

419 474 342 297 300 876 850 68 782 638 441 347 302 565 383 170 525 201 198 131 283 620 389 161 467 295 560 36 473 89 773 606 123 635 262 218 188 348 704 157

241382 232646 423220 198169 100010 395815 326762 62679 397119 302783 184012 219661 262858 269054 199916 152146 186229 197693 200901 122732 171252 264801 137420 203434 164797 231943 136779 54362 268235 121553 318905 222926 107559 470608 114034 103755 116257 140358 439184 164205

83518 64064 136852 60147 31519 107350 91920 27559 70442 78028 48499 67394 86604 69542 69779 40614 62562 71061 57742 49228 71889 78576 44201 64924 43891 85551 45905 22074 74506 26973 81452 76591 41566 131824 33223 36410 41209 36455 125943 53114

49191 28083 66067 32706 21753 83842 63188 10116 27838 54427 25679 44965 72523 46851 56432 30517 59643 41335 33791 31562 47240 47597 39135 31174 36879 35845 30011 6096 51049 15364 51872 54973 24101 97853 16109 24384 19114 24074 60156 33521

20823 18217 38857 18028 13515 35726 21669 4444 15840 20793 7575 21692 25664 12480 21144 15991 20078 20745 19240 17298 18000 22506 12065 20786 15133 26002 11047 4429 19424 6343 18427 18249 15790 40210 11106 15350 8836 13916 32977 21099

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41 KANNAUJ 1047 42 KANPUR DEHAT 1559 43 KANPUR NAGAR 1674 44 KASHIRAM NAGAR 920 45 KAUSHAMBI 924 46 KUSHINAGAR 1804 47 LAKHIMPUR KHERI 2379 48 LALITPUR 929 49 LUCKNOW 1408 50 MAHOBA 667 51 MAHRAJGANJ 1312 52 MAINPURI 1509 53 MATHURA 1257 54 MAU 1093 55 MEERUT 992 56 MIRZAPUR 1487 57 MORADABAD 1963 Processing... 58 MUZAFFARNAGAR 1395 59 PILIBHIT 1200 60 PRATAPGARH 1761 61 RAE BARELI 1320 62 RAMPUR 1282 63 SAHARANPUR 1381 64 SANT KABIR 1008 NAGAR 65 SHAHJAHANPUR 2333 66 SHRAWASTI 797 67 SIDDHARTHNAGAR1555 68 SITAPUR 2622 69 SONBHADRA 1298 70 SULTANPUR 1451 71 UNNAO 2048 72 VARANASI 1138

469 1516 669 2228 668 2342 460 1380 471 1395 824 2628 1123 3502 482 1411 508 1916 353 1020 657 1969 573 2082 582 1839 528 1621 492 1484 579 2066 852 2815

1098 1168 1635 782 1012 1874 2157 886 1154 631 1350 1492 1046 1079 874 1516 1713

194 250 177 405 253 912 673 253 238 175 624 331 196 191 225 347 566

116843 122003 161366 135509 162291 288350 421415 150075 183783 81050 233484 115407 109094 202744 105350 262677 243435

54940 42119 67339 25298 53383 78161 104214 40279 55472 25802 57105 62152 50749 60484 35859 83171 73000

39851 45101 30718 17983 15408 52012 87724 32613 19812 21895 39015 32974 31674 30658 17818 37799 53677

17142 12079 22985 6527 11137 18995 33025 16832 15878 9372 17172 19708 15139 21472 11360 21923 16601

648 566 600 521 560 587 439

2043 1766 2361 1841 1842 1968 1447

1242 1303 1595 1284 1277 1504 951 1641 694 1403 2407 1193 1431 2023 898

250 411 367 271 353 333 471 443 357 675 783 168 409 338 105

173931 140944 235545 199112 174820 165090 144936 337865 95806 210686 447951 206895 171150 222619 182040

70879 49054 86488 65080 48278 63260 31664 75938 20665 54556 109387 67583 69656 93481 85789

37776 57496 38751 37164 20881 34121 28032 54246 25627 40731 58645 37434 52930 51306 54770

17866 16467 21033 21332 10556 18991 8561 18069 3472 12628 29506 21339 21559 27403 22104

889 3222 384 1181 710 2265 1111 3733 568 1866 609 2060 791 2839 427 1565

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.

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UNICEF 3/194, Vishal Khand, Gomti Nagar Lucknow, Uttar Pradesh 226010

Mid Day Meal Authority Third Floor, Uptron Building Lucknow, Uttar Pradesh

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