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29 October 2015
8 March 2016
Accepted 15 March 2016
Abstract
Purpose Although government investments in IT is growing, it is unclear how and what kind of IT
investments lead to desirable E-Government performance. Several studies pertaining to the business
value of IT have developed and tested frameworks for IT infrastructure, IT capability and business
performance. However, E-Government-related IT investment outcomes cannot be measured by
profits and hence requires a separate investigation. E-Government research using theoretical approach
has been reported as very scarce in previous studies. This research aims to bridge the gap by developing
a model to study IT infrastructure capability and E-Government performance in the emerging context
of new IT service delivery models.
Design/methodology/approach This paper follows a case study method in this research with a
priori conceptual framework. The data were collected following an interview method used for deductive
theory building.
Findings The results identified a positive relationship between IT assets and IT infrastructure
performance in the presence of service delivery channels and an anticipation of a positive influence of
infrastructure performance variables on IT capability which in turn shows positive effect on
E-Government performance.
Research limitations/implications Because the study followed a qualitative approach, the
findings from this study are not useful for statistical generalization. However, the analytical framework
provides sufficient ground to test E-Government performance.
Practical implications The study provides insights in the choice of IT infrastructure elements
fitting an E-Government strategy.
Social implications This study provides an integrated framework for measuring E-Government
performance, thereby making deployment of IT infrastructure accountable both in terms of IT
performance and IT capability. This in turn will lead to improvement in citizen services.
Originality/value This paper builds on the existing literature on IT assets, IT infrastructure
performance, IT infrastructure capability and applies to the E-Government domain.
Keywords Service delivery, IT infrastructure, E-Government performance, IT capability,
IT service
Paper type Research paper
1. Introduction
E-Government initiatives that leverage the potential of information and communication
Transforming Government:
technologies have had a high positive influence in enabling and transforming People, Process and Policy
government services in many countries (UNPAN, 2012). However, the extent of IT usage Vol. 10 No. 3, 2016
pp. 411-433
for governance is characterised by wide disparity between developed and developing Emerald Group Publishing Limited
1750-6166
countries all over the world. India has received relatively low ranking based on DOI 10.1108/TG-07-2015-0031
TG E-Government development index (UNPAN, 2012, 2014) and the impact of projects has
10,3 been characterised by wide variance.
Recent studies on E-Government worldwide have recognized IT infrastructure
capability as a crucial requirement for E-Government effectiveness (UNDP, 2012;
APDIP, 2013). Emergence of infrastructure as a service deployment model has opened
an economical service delivery model for business and government (Armbrust et al.,
412 2009). However, it is not clear as yet how this new form of IT services delivery in
infrastructure would fulfil the requirements of IT capability and in turn provide better
governance.
Although prior research has extensively addressed the impact of IT infrastructure
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capability on firm performance, studies addressing how these factors interact together
and the impact outcome of E-Government services have received much less attention.
Further, E-Government research using theoretical approach has been reported as very
scarce in previous studies (Heeks and Bailur, 2007). In the backdrop of the increasing
adoption of technology by governments, this study seeks to bridge the above gaps by
developing a framework to study the effect of IT performance and IT capability on
E-Government performance. This research builds on the existing literature on IT assets,
IT infrastructure performance and IT infrastructure capability and applies it to the
domain of E-Government. From the industry perspective, this research would help in
providing a methodology to identify the right set of IT infrastructure elements fitting an
E-Government strategy.
The rest of the paper is organized as follows: Section 2 reviews the related literature,
while Section 3 develops the necessary theory leading to the proposed conceptual
framework. Section 4 describes in detail the research methodology undertaken. Section 5
provides the details of the case study and data analysis. Based on the variables extracted
from literature survey and the single site case study done, Section 6 develops the revised
research framework and formulates the research propositions. Finally, Section 7
concludes with the key contributions of the work, implications for policymakers and the
future work on theory development. The overall work presented in the paper is
diagrammatically represented in the form of a research design as shown in Figure 2.
2. Literature review
Previous studies have identified the linkages between IT assets, IT capability and firm
performance for business organizations. Initially, various studies on strategy (Grant,
1991; Russo and Fouts, 1997; Amit and Schoemaker, 1993) focussed in general on how
resources and capabilities of the firm provide a mechanism in formulating the firm
strategy for achieving competitive advantage (Backus, 2001; Ebrahim and Irani, 2005).
Further, several studies examined how IT investments contribute to firm performance
in the business context (Mata et al., 1995; Bharadwaj, 2000).
IT infrastructure.
According to Broadbent et al. (1999), the internal IT infrastructure is composed of
four elements:
(1) IT components (the technologists view of the infrastructure building blocks);
(2) human IT infrastructure (the intelligence used to translate the IT components
into services that users can draw upon);
(3) shared IT services (the users view of the infrastructure); and
(4) shared and standard applications (fairly stable uses of the services).
outsourced and configured with least management effort or service provider interaction.
The computing resources imply servers, network configuration, communication
infrastructure, storage databases and related services (Armbrust et al., 2010).
A major benefit of the Cloud is that it helps consolidate all data centres and optimize
resource utilization, reducing support and maintenance costs by more than half, without
compromising on performance, availability and reliability of applications. Service-level
agreements are key for the government to measure how well the services are being
performed and provided by the government. The Cloud helps provide E-Government
services faster and cheaper, thereby accelerating the adoption and use of IT for
E-services. Cloud architectures allow rapid deployment of turn-key test environments
(Armbrust et al., 2010; Buyya et al., 2009; DEITY, 2013).
The second aspect of IT infrastructure technology pertains to SOA which is a
deployment architecture that enables building new applications quickly and easily. It
helps provide agility by configuring entities (services, registries, contracts and proxies)
to maximize loose coupling and reuse (Gruschka et al., 2011; Bertini and Ferrari, 2002).
Interoperability is a major benefit in SOA when one has to tie heterogeneous systems.
E-Government Interoperability can be defined as (UNDP, 2012; UNPAN, 2012, 2014):
The ability of constituencies to work together. At a technical level, it is the ability of two or
more government information and communications technology (ICT) systems or components
to exchange information and to use the information that has been exchanged to improve
governance.
Guijarro (2007) has reported interoperability as a key architectural principle in the
conception and deployment of E-Government initiatives. His study of six major
initiatives being carried out by E-Government agencies of the European Union, UK,
Denmark, France, Germany and the USA reported how these initiatives followed
interoperability frameworks. Guijarro (2007) further states that the consensus around a
single framework in each government is essential for E-Government implementation
success because it enables the seamless information flow between institutions.
In the Indian context, Bhatnagar and Rao (2007), Rao et al. (2004), Gupta and Jana
(2003) and Satyanarayana (2012) have identified attributes of IT capability and
E-Government performance that have positively influenced each other through case
studies of Indian E-Government project implementations (Gupta, 2010; NIC, 2015;
NeGP, 2008; NISG, 2015). This has led there by to the creation of a broad E-Government
framework for measuring value creation in terms of economic and social development
and experience gained in the form of competencies (skills) and implementation practices
gained from the IT projects that have undergone various stages of transformations in
terms of improvement in performance.
In summary, E-Government performance studies have been characterized by
frameworks that are not well grounded on theory and do not report validation results
(Esteves and Joseph, 2008); the work on frameworks requires further validation by
testing on heterogeneous E-Government projects. Furthermore, E-Government
performance and its determinants have been scarcely addressed in academic literature
with adequate theoretical support (Heeks and Bailur, 2007). This research seeks to
address some of these gaps by developing a conceptual framework to study
E-Government performance and empirically test how IT assets, IT infrastructure
performance and IT infrastructure capability influence E-Government services.
Following our review of literature and theory development, we identify the elements of
IT assets, IT infrastructure performance and IT infrastructure capability along with
that of service delivery models to explain the performance of E-Government. We
anticipate that service delivery models will influence the relationship between
investments in IT assets and their performance leading us to Figure 1 that depicts the
proposed conceptual framework guiding our further research.
4. Research methodology
The purpose of our research is theory building with a priori conceptual framework
drawn from prior research framework (Eisenhardt, 1989; Carlile and Christensen, 2005;
Harrison, 2002; Yin, 2014). As discussed in Section 3 on theory development, our
conceptual framework was first developed by combining business value studies in IT
and E-Government performance studies. With the extant view thus developed, we
further seek evidence for this framework in E-Government to validate and arrive at
IT RESOURCES
Control variables
IT Assets
The case studys unique strength is its ability to deal with a full variety of evidence
documents, artefacts, interviews and observations (Figure 2).
officers or system analysts. Further, the IT programmers were again staff appointed by the
district with qualifications under graduates in engineering or Master degree holders in
science or technology. In addition, the data entry operator staffs were again educated to the
higher secondary level with a one-year computer diploma certificate and selected at
district-level recruitments as ad hoc staff. Lastly, the government bureaucrats implied the
senior government officials who held decision-making powers. The data were collected from
six face-to-face interviews. In addition, we conducted telephonic interviews at the beginning
and the end for understanding and filling the gaps felt in the data collection. We took
extensive notes, and the interview data were combined with on-site observations and with
review of the system documentation and related archival records. For instance, the HARIS
HALRIS system and related upgrades were studied to understand the functionality of the
various menu and screen tabs by tracing the information flow of data storage in the currently
implemented system. Various documents like registration deed and deed templates were
analyzed. A registration deed contains details of the property in the custody of various
stakeholders like buyer, government officials and in records. Deed templates/formats are
available online as additional facility in the system. Alternatively, the deed writers prepare
the manual format on stamp paper. In addition, notification related to collector rate and land
policy were analyzed and studied. These documents were related to the incorporation of
enhanced property rates as fixed by government officials annually and to the changes
implemented through software patches regarding the changes in land regulations as
introduced by the state government.
consolidation of E-Governance (post 2000) with the enactment of the IT Act 2000 by the
Indian Parliament laying the groundwork for implementation of a working mechanism
for E-governance and E-Business. E-mails and online transactions became a valid
mechanism for agreements, and the procedures regarding the online transactions were
further strengthened so that the citizen-centric services became more effective and
efficient. Further, in 2006, the national-level E-Governance programme called National
E-Governance Plan was initiated. This consisted of 31 Mission Mode Projects (MMPs)
covering a wide range of departments/ministries, i.e. agriculture, land records, health,
education, vehicle registration and passports, etc. Further, 24 MMPs have been
implemented and started delivering either full or partial range of envisaged services.
Although these E-Government projects were citizen-centric, they still had a long way
to go in terms of creating impact because of their limited features. This clearly pointed
towards the need for a more comprehensive planning and implementation for the
infrastructure. However, to put this in place required interoperability issues to be
addressed for establishing a more connected government. A decision at the government
level was taken in which all new and on-going E-Government projects will be revamped
and hereafter had to follow the key principles of e-Kranti, namely, Transformation and
not Translation, Integrated Services and not Individual Services, Government
Process Reengineering (GPR) to be mandatory in every MMP, ICT Infrastructure on
Demand, Cloud by Default, Mobile First, Fast Tracking Approvals, Mandating
Standards and Protocols, Language Localization, National GIS (Geo-Spatial
Information System) and Security and Electronic Data Preservation (Digital India,
2015; DEITY, 2015).
At this point of time, the portfolio of MMPs has increased from 31 to 44. Many new
social sector projects, namely, Women and Child Development, Social Benefits,
Financial Inclusion, Urban Governance, eBhasha, etc., have been added as new MMPs
under e-Kranti. In short, to transform the entire ecosystem of public services through the
use of information technology, the current Indian Government has launched the Digital
India programme with the vision to transform India into a digitally empowered society
and knowledge economy (Digital India, 2015; DEITY, 2015).
HARISHALRIS Integrated System is one of the mission mode projects implemented
in the state of Haryana by the Department of Land Records in the North Indian state of
Haryana. This study analyses this E-Government project to understand how IT assets,
IT infrastructure performance and IT capability affect results of the project
implementation. It is a single-site case study undertaken in the district of Sonepat in the
state of Haryana. Figure 3 shows the second level of screens that showcases all screen
options and tabs with real-time data snapshot.
TG
10,3
420
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Figure 3.
HARISHALRIS
Integrated System
Deed Wring
Through HARIS
Pencil Remarks
Property Details
Updaon
421
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Consignment
Figure 4.
Nakal (ROR) of Integrated workflow
Old Jamabandi
of property
Record Room Cizen registration system
and land record
Source: (NIC, 2015; NISG, 2015) system
the year 2000-2001, the software was upgraded to MS-Access and Visual Basic with
support to a single service, i.e. for property registration of Deed in HARIS. Again, in the
year 2003-2004, the systems were upgraded to SQL Server, IIS Server and Visual Basic
with major improvements in the backend database of HARIS. The next phase in
2005-2006 led to the development of HALRIS. At present, the services of property
registration and land records are offered as HARISHALRIS Integrated System. This
subsequent expansion and integration of the system has demonstrated IT capability
from underlying infrastructure and its performance, influencing effective delivery of
citizen services. With the rollout of HARIS (Property Registration) and HALRIS (Land
Records) projects across Haryana, new challenges started emerging in delivery of
services to citizens. One such issue was authentication and verification of ROR copies so
that other agencies like financial institutions, builders and buyers could trust the
computer-generated RORs. This was necessary to check the frauds, which can be
committed by tempering the hard copies of Nakals (drafts) issued by the HALRIS
centres or the possibility of generation of duplicate RORs by scanning and modifying
the original ones. The computer-printed copies of RORs were issued with the seal and
signatures of Patwari (village(s) land demarcation official) posted at the HALRIS Centre.
There are chances that a person can tamper the ROR before submitting it to the Bank or
any other agency. Therefore, a need was felt to devise a security mechanism, by
developing and implementing a verifiable two-dimensional (2D) bar-coded computer-
generated RORs. The solution developed has two main components, first one a 2D bar
code generation modules and other is bar code verification module. Both these
components use 2D Bar Code, XML and Hashing technology.
TG The HARIS and HALRIS are being implemented at all districts of Haryana.
10,3 According to the IT manager, the successful implementation has resulted in greater
transparency, ease of service delivery and increase in revenue collection. Revenue
department provides four services related to revenue records: property registration,
Nakal of revenue records of rights, mutation activity and deed writing through licensed
deed writers.
422 Based on the literature study done, five broad constructs were identified in the
conceptual model. This was followed by an in-depth case study which led to the
identification of 14 specific constructs. Subsequently, Table I lists how these specific
constructs that were identified for the study and evolved from our conceptual
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IT asset Infrastructure Investment in MS SQL server, other windows At present it (the system) is running on a Windows with MS SQL
technologies Server database (IT Staff)
Transactional New system takes less time to coordinate with Documents are more secured owing to on the spot scanning of
government functionaries the photos for land transfer thus reducing the cases of frauds to a
large extent
Informational The system stipulates common business rules and The manual task previously took around a weeks time due to
regulations involvement of different government functionaries
IT infrastructure Reliability The implementation has resulted in greater transparency, The Property Registration System and Land Records system
performance ease of service delivery and increase in revenue collection were dynamically integrated in a workflow environment
Flexibility Dynamic integration of land record and property Initially, since the late 1990s the system went through a gradual
registration systems transition from a Unix based Foxbase database supported system
Scalability The HARIS & HALRIS are being implemented at all to a Window based MS-Access supported system
districts of Haryana
IT capability Functionality (quantum and Documents secured using spot scanning The volume of data has moved from MBs to GBs of data in the
nature of services) Four services provided through the system: 1. Property last few years thereby creating the necessity for an enterprise
Registration, 2. Nakal of Revenue Records of Rights, 3. framework identification (Senior IT Manager)
Mutation activity, 4. Deed writing through licensed Deed
Writers
Connectivity (reach and Automatic Generation of new Jamabandi
range) Availability of ROR on Internet
E-Registration facility for booking appointment for
property registration
The HARIS & HALRIS are being implemented at all
districts of Haryana
Availability of Record-Of-Right (ROR) on Anytime,
Anywhere basis
Competencies Regular training is provided to the staff on new module/ Experience in the form of practices (also called routine tasks)
patch additions done to the system vary from person to person based on IT skills and as result full
Knowledge transfer sessions are also provided by experts capability of the system is not exploited to the fullest (IT
from NIC Programmer)
Mentally align to the future plans/changes
Practices Troubleshooting and fire fighting unexpected problems
while system is online and in service
(continued)
Table I.
423
for
Evolution of concepts
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TG
10,3
424
Table I.
Dimension Concept Related interview statement Selected quotes
Service delivery Cloud Deployment Expansion of the system In a country like India where more than 70% of the population
model Management of large volumes of data resides in rural areas with diversified language, culture and state
administrations, this system is specific and limited in its role to
one state and so does not seem to lend itself to an enterprise wide
interoperable architecture and integration at the federal level in
the near future
SOA Deployment Federal-level integration Growing data volume in turn will enforce implementation of SOA
Interoperability with other states and Cloud deployment (Senior IT Manager)
E-Government Quality of Service (QoS) ease of service delivery The project has reduced service delivery time from weeks to a
performance service delivery time improvement matter of few minutes
Quality of Governance greater transparency
(QoG) increase in revenue collected
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1 Property registration to general public IT Education management for general public via training Tehsil and sub-Tehsil level
Services management to manage and negotiate with
outsourcers
2 Nakal of revenue records (namely, Nakal of Data management to enforce standards Tehsil and Sub-tehsils level. However, with a server
Jamabandi (ROR) and Mutation) of rural land to Communication Management to manage state wide maintained at Chandigarh (capital of Haryana state)
public network services the land owners can also access the Jamabandi
Backup Servers and UPS online through http://Jamabandi.nic.in/.
Daily Automatic backup facility Approximately 3,000 Nakal services
Additional manpower and hardware deployment
3 Mutation related services to land owners IT R & D to identify and test tools and technologies to Tehsil and sub-tehsil level. However, mutation
support upgradation in features and facilities related services can be accessed through a server
maintained in capital of Haryana state through
http://Jamabandi.nic.in/
4 Computerized deed writing services Application management to support e-business features Deed templates are available online. However, at
and support multi-media operations this point of time the deed writing is done manually
through deed writer kiosks existing at the Tehsils
5 Integration of property registration and land records Services management to maintain large data processing Available in the whole of the state of Haryana. It is
providing online mutation service facilities the first state in the country to have this property
Standards Management to enforce interoperability and integration feature
open standards
Software and application upgradation in 2000, 2003 and
2005
6 Automatic generation of new Jamabandi Application Management by generating certified Approximately 3,000 registrations
e-documents
7 Availability of ROR on internet Application management by generating MIS reports and Citizens/land owners can access the copy of the
managing related functions land records through the citizen service delivery
Security for authentication and fraud prevention system http://jansahayak.gov.in/
8 E-Registration facility for booking appointment for Application Management by providing multi-media Available not only at Tehsil/sub-Tehsils but also in
property registration supported operations state capital. The finance commissioner office
controls the limit on number of bookings for better
control and reduce corruption
the system
Table II.
e-government
Framework
Services provided by
TG 6. Proposed research framework
10,3 We revised our research framework presented in Figure 1 with more information
received from the case study as depicted in Figure 5. We identified variables relevant to
our research as given in Tables I and II which were extracted from case study data.
Although previous studies have used strategy as a variable in IT asset category, we
excluded it from our framework, as we did not get any support for strategic deployment
426 of IT assets. Previous studies have used this variable in the context of profit-making
firms competing in a market environment. E-Government systems are implemented by
the Government for efficient delivery of Government services to its citizens and as such
do not generally operate under competitive market forces. We found three variables:
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IT RESOURCES
Infrastructure IT Intangibles
Transaconal Organizaon
Informaonal
IT Capability
E-Government
Service Delivery4.Model
Funconality Performance
Connecvity
Cloud Deployment Competencies Quality of Service
SOA Deployment IT Infrastructure Pracces Quality of Governance
Performance
Reliability
Figure 5. Flexibility
Research framework Scalability
results from previous studies on IT investments and firm performance (Bharadwaj, Framework
2000), we expect that it is not the mere size of investments, but the purposeful for
investments that will lead to better performance of E-Government.
Following the RBV as applied to IT, IT infrastructure as a valuable resource must be
e-government
reliable to ensure IT services to be delivered under warranty conditions defined by
service-level agreements (Applegate and Austin, 2008; Weill and Vitale, 2002).
Reliability is assured by redundancy in the provisioning of IT infrastructure. Second, 427
flexibility is a key attribute of an IT infrastructure to adapt fast to changes that might be
required in future scenarios (Duncan, 1995; Byrd and Turner, 2000). Byrd and Turner
(2000), based on a quantitative study covering major Fortune 1,000 firms, showed that
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7. Conclusion
In the backdrop of growing investments in IT by governments, our main objective was
428 to develop a framework to analyse how IT infrastructure creates IT capability which in
turn influences E-Government performance. Drawing on previous studies in IT and
business value and E-Government systems, we developed an extant view of IT and
E-Government performance. We further validated the extant view by analysing data
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7.1 Implications
Presently several governments and their agencies are deploying new IT systems having
specifications relevant to their current and immediate needs. This urgency leads to
inadequate attention towards the need to connect, exchange and re-use data with other
IT systems, i.e. leading to a lack of interoperability. The result is a patchwork of IT
solutions that is not always compatible with each other and an E-Government
programme that does not meet its goals. Further, investments in IT infrastructure are
expected to provide strategic value to all the stakeholders of the E-Government. This
implies that the right strategic balance between technology capability and the
organization goals is imperative for E-Government performance. In the domain of
E-Government integrating service, deployment models have become a crucial issue
because visibility and transparency in the public services at the ground level requires
both improvement and reinforcement of IT investments. The Government of India
recently launched the Digital India initiative to address the need of putting in place a
policy of bringing transformation in E-Government. It is in this context, the service
delivery model elements, namely, SOA and Cloud that are part of the research
framework described in this work, suitably address the issues of transformation in
E-Government projects, e.g. interoperability and infrastructure on demand.
This research work contributes to theory development in E-Government domain by
proposing a theoretical framework to test E-Government performance using the
identified dimensions and constructs. These specific constructs will form the basis for
taking this work to the next level of theory testing by operationalizing the constructs.
From E-Government practice standpoint, the research framework proposed in this
paper provides some evidence from E-Government practice to its propositional
argument that deployment of service delivery models positively influence the
performance of IT assets and IT capability. With more test cases for validation, this Framework
framework could guide the choice of IT infrastructure to ensure desired e-government for
performance.
At the social level, this work provides an integrated framework for measuring
e-government
E-Government performance, thereby making deployment of IT infrastructure
accountable both in terms of IT performance and IT capability.
429
7.2 Limitations
This study followed a case study approach and as such the findings are not useful for
generalization to a population. However, the findings have been articulated for
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Appendix Framework
A partial list of the questions used for data collection using interview method (including
using semi-structured and unstructured questionnaire):
for
e-government
Project Related Information
Name of the E-Government service / system:
For how many years you have been using the HARIS-HALRIS system (years):
Year project started:
Extent of automation (Full / Partial)?
433
Year online service delivery started:
Current status:
Services delivered online:
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Information Quality
(Scale: 1- Strongly disagree 2 3 - neutral 4 5 - Strongly agree)
The E-Government system provides the following kind of information that you might need:
a. Precise information b. Sufficient information c. Up-to-date information
System Quality
(Scale: 1- Strongly disagree 2 3 - neutral 4 5 - Strongly agree)
The E-Government system is:
a. User friendly b. Easy to use
Service Quality
(Scale: 1- Strongly disagree 2 3 - neutral 4 5 - Strongly agree)
The services provided by the E-Government system reflect:
a. Sincere interest in problem solving b. safety in Transaction handling c. getting
individual attention
Use
(Scale: 1- Strongly disagree 2 3 - neutral 4 5 - Strongly agree)
Use of the E-Government system:
a. Has made you dependent on it
b. Has increased your frequency of use of it
User Satisfaction
(Scale: 1- Strongly disagree 2 3 - neutral 4 5 - Strongly agree)
As an End-user you are:
a. Satisfied with the E-Government system
b. The E-Government system has met your expectations.
Corresponding author
Deepak Dahiya can be contacted at: compdeep@yahoo.com
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