Presentation Slides On Chigphen Rigpel Project - National Assembly

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Performance Audit Report of‘Chiphen Rigpel Project’APRIL 2016

About the AuditThe Royal Audit Authority (RAA) hadconducted the audit under the mandatebestowed by the Constitution of the Kingdom of Bhutan; The Audit Act of Bhutan 2006; and The Clause 9 of Master Agreement.

Audit ObjectiveThe overall objective was to ascertain whether due regardwas given in ensuring economy, efficiency and effectivenessin the operations of ‘Chiphen Rigpel Project’ .The specific objective:1. To ascertain the adequacy and compliance to legal andpolicy instruments in place;2. To assess whether due care was exercised in theidentification, preparation and appraisal of the project,and the requirement has emerged on need-based orbased on overall developmental policies of theGovernment;

Specific objectives3 To identify whether the operations were carried out withdue regard to economy and efficiency and in accordancewith applicable rules and procedures of RGOB;4 To review whether the planned activities and programmeshad been implemented as agreed and completed ontime;5 To assess that the programmes and activities undertakenwere relevant and had benefited the stakeholders;6 To ascertain whether proper mechanism had beeninstituted for the sustainability of the programmes andactivities.

Audit Scope The audit covered the period frominception (2008) till June 2014. Audit mainly covered the initiation,planning, execution, completion and postimplementation phase of the project. The review focused, among othersprimarilyonascertainingtheconceptualization and implementation ofthe project.

Audit Limitations Absence of adequate documentation andrecords pertaining to the Project. Absence of itemized cost break-up foreach project components which hasconstrained RAA from giving an objectiveconclusion of analysis with regard to theProject's economy aspect.

Project ConceptualizationNov, 2008NASSCOM’s annual retreat held in Thimphu.14th Jan,2009NIIT submitted a proposal to the Government offering its Services.6th Feb,2009GNHC Secretary, MoFA Thimphu, to explore possibilities of GoIfinancing the proposal in addition to their 10th Plan commitment.14th Feb,2009MoU signed & NIIT was identified as the Education Partner, forimplementing Project.17th Feb,2009DITT NIIT to draft contract document of the Project.11th Mar,2009Signed the Master Agreement30th Jun –3rd July2009Hon’ble PM visits India, GoI mutually agreed to incorporateproject into 10th Five Year Plan as additional GoI grant.

Project ConceptualizationNov, 200814th Jan,200931st Dec20096th Feb,200914th Feb,200930th Dec2009MoIC, receives letter from NIIT, detailing the breakdown ofconsideration of INR 2.053 billion for supply of goods andservices for the acceptance.22nd Dec2009Memorandum of Understanding (MoU) on Development ofInformation & Communication Technology (ICT) in Bhutansigned, and agreed to the early implementation of Project.17th Feb,200911th Mar,200930th Jun –3rd July2009Meeting with Hon’ble Prime Minister, in presence of Mrs. Rama,GM, NIIT, India, explained that the project was approved forfinancing by the Government of India, approval of the proposalwas delayed, as the proceedings were anomalous fromestablished norms, and involved identification of a firm withoutcompetitive bidding.8th July,2009DIT Secretary, MOFA, Thimphu, to seek firming up on thefinancing of the Project (2.05 billion) with the relevantofficials in India.

Project ConceptualizationNov, 200814th Jan,20096th Feb,200931st Dec200930th Dec200914th Feb,200917th Feb,2009Chiphen Rigphel Project formally launched.13th April,201022nd Dec200911th Mar,200930th Jun –3rd July200930th April,201021st Jan20108th July,2009First trenche of Nu. 20,000,000.00 ofthe Project from GNHC was releasedto Department of Public AccountsMoIC has taken the first steps to launchthe Project

Chiphen Rigpel Project saKnowledge-based societyby leveraging technologyandeducation.Theproject was intended anddesigned to impact eachstratum of the Bhutanesesociety in the remotestpart of the country1. Enabling E-Governance (RIM)Project ComponentsThe2. Empowering Teachers (MoE)3. Taking ICT to Schools (MoE)4. Enhancing Employable Skillsi. TTIS (MoLHR)ii. Vulnerable Youth (YDF)iii. Tertiary Educational Institutions (RUB)5. Reaching the Unreached (DIT)6. E- Waste Management (NEC)

Project CostThe Project was funded by GoI with Nu. 2.052 billion overand above the 10th Five Year Plan commitment asadditional GoI grant.Sl. ComponentNo.1Infrastructure2Infrastructure forInformation Centers3Services4Service TaxTotal for the 73.75162.102,052.70

Project InfrastructureSl.Sl. No.No.ComponentsTotal No of NoNo. ofSitesvisited1Enabling E-Governance742Empowering Teachers763Enhancing Employable Skills854Engaging Vulnerable Youths315Tertiary Institute go Hi-Tech546ICT at Schools168637Reaching the Unreached13144329127TotalSites

Project ServicesSl.Sl.No.No.Components / servicesTraining/certifica Termsoftions/Schools/sit executiones1Training of Government officials 7000Civil 3.5 years(Enabling E-Governance)Representatives2TakingICTtoGovernment 168 SchoolsSecondary(High,MiddleandLower) schools on BOT(Build,Operate & Transfer) basis (ICT at5 yearsSchools)3Raising Morale and Motivating 5000 TeachersTeachers (Empowering Teachers)3.5 years4Education for employment to build 11 centersknowledgesociety(Enhancing4 yearsEmployable Skills & Engaging VulnerableYouths)5Reaching the unreached261 Stations5 years

ACHIEVEMENTS Established over 200 computertraining laboratories. Setup 131 Hiwel Playground LearningStation Developed and provided coursematerials for the training. Reported to have trained and certifiedmore than 32,318 participants in thefield of basic as well as advanced ICTcoursesexcludingtheschoolstudents.


COMMON FINDINGS1. Inadequacies in the Master AgreementUnclear specification ofgoods and services andBill of Quantities Didn't contain thespecification of goodsand services and Bill ofQuantities. This has allowed theNITT with completediscretion in terms ofwhat specification ofequipment is to bedelivered.Defective payment clause Allpaymentsunderthisagreement were made as perthe payment schedule andmilestones defined. The payment was made onTranches and percentage basis. Master Agreement did notcontain and specify the sectoralcost break- up (budget) anditemizedcostoneachcomponents of the project. Cost detailing the break-upsubmitted by the NIIT to MoIC,was not used as a basis forsigning of the Master Agreementand the payment at a later date.

2. Lack of Sustainability Plan NIIT in association with DIT didn’t have anysustainability plan as required by theMaster Agreement, although fund of Nu.5.41million had been specifically allocated. Maintenance of computer laboratories, PLSinstitutes, colleges and community centers. The Project employed 181 Bhutanese ICTgraduates.

3. Lack of clarity in setting of project targetsand components The Project’s objective to transform Bhutanfrom subsistence economy to informationrich economy was not realized. The idea of creating Bhutan as a“Knowledge based society” was notproperly planned.

Actual Vs Target for each of the project componentSl.ComponentsRemarksTargets Actual LeftNoNos.Nos.out.1 Training on Enabling E- 7,200 16,116 8,910 Teachers excludedgovernance5,0007,067 2,067 Private2 Training of Teachersteachersexcluded16816913 ICT to High & Middle Sec.PrivateschoolsschoolsexcludedNANA Non availability of4 No. of Certification of 25,600youths under vocationaldataand tertiary institutes5 Reaching the unreached131NANAProject proposed 261sitesCourtesy:Courtesy: Annual Education Statistics 2010 & Statistical yearbook 2010

4. Need assessment not carried out adequately during theconceptualization of the Project The DIT, MoIC have notcarried out proper needanalysis on ICT situation inthe country.The implementing agencieswere never involved at thetimeofprojectconceptualization, and didnot carry out whether suchactivities were required ornot.Course materials shelved (lying idle) in the Colleges“In nutshell, if the college is offered with similar projectthrough NIIT, I will recommend to go for but NOTUSING SAME BUSINESS MODEL of the first phase ofCRP Project”-College Authorities

5.Improper evaluation of the services rendered by the project The review of handing-taking and relevantdocuments revealed that there is no mechanisminstituted for evaluating the services/outputs of theprojects to ensure that intended outputs weredelivered and value for money ensured.Most of the implementing agencies did notevaluate the actual impact created by the Project.

Improper evaluation of outputs of the projectsSLNo.No.12Name of Components Implement Lapses/DeficienciesingagenciesEnablingE- RIM & DIT Training not conducted based on thegovernanceprojected/targeted participants as per theimplementationandEducationProcessManagement & System Integration DesignReport.EmpoweringMoEIneligible candidates trainedTeachers3EnhancingEmployability skillsMoLHR4Tertiary institute go- RUBHi tech.Basic ICT Courses were offered which werealready instituted in the colleges5ReachingunreachedMost PLS lying idle as there were novisitors/users due to non-feasibility of locationsthe DITBasic ICT skills trained and not trained based onmarket needs.Courtesy:: RAA analysis and document reviewCourtesy

6. Lack of ownership after the completion of the project There was lack of clear directives from thegovernment on the ownership of nonexpandable property, while the detailedhanding taking document between the NIITand concern agencies reflect that theproperties were officially handed over to therespective agencies.

7.Unrealistic cost prepared by the NIIT Limited and accepted byRGoB indicating no value for money on engagement of NIITLimited Project conceived on massive scale typicallybased on the proposal from the NIIT. MoIC did not review the cost prepared by theNIIT Limited MoIC pointed out that, “RGoB do notunderstand the actual basis for cost approvalof the project”

Summary of project cost breakdownSl. No.Project DeliverablesTotal Cost (Nu. in millions)% of the Total Cost1Infrastructure202.189.852Infrastructure for CIC114.665.593Services Project Report & Implementation Manual9.730.47 Education Process Management & SystemIntegration Design4.860.24 e-Waste Strategy and Management Report10.810.534Project Establishment Cost29.661.445Hardware Training21.621.056Content & Course ware573,6327.957Software Kit120.785.888Manpower439.7821.429Program Management248.9012.1310Other including audit related to quality standards& execution inclusive of mandatory audit100.424.8911 Management of E-Waste disposal8.110.40 Sustainability Analysis & Plan5.410.26162.107.902,052.70100.00Service TaxTotal for ProjectCourtesy: Summary o f Cost breakbreak-up submitted by NIIT Limited.

Sl.Sl.No1.Project deliverablesAuditrelatedtoquality standards &execution inclusive ofmandatory auditCost tion1. The RAA as mandated performedmandatory audit on regular basis.The audit is not able to determinethe actual basis of such expensesrepresenting 0.67% of the projectcost. It is apparent from thecomments of the PCC that statutoryaudit and other audit related cost ofNITT is being financed from theproject.

8. Deficiencies in Infrastructure costinga. Non-utilization of Anti-Virus, Nu. 1.785 millionb. Inadmissible payment of Service Tax of Nu. 60.70million No service tax on services for services rendered byIndian firms/companies/individuals in Bhutan w.e.f 1stJuly 2012. If already paid from 1st July 2012, was required to beadjusted from the balance payments. As of September 2013, Nu. 39.5 million service taxwas paid to NIIT-which was to be adjusted Remaining to be recovered Nu. 21.20 million

SPECIFIC FINDINGS1. Component One: Enabling E-governance Lack of clarity on taskanalysisandcurriculum mapping onenabling E-Governancecomponent . Ineligible participantsfor the training. Government’sContributionnotrecognized by theproject Someofthecourses were notidentified in theProject final scope& deliverables. Inconsistencyinhanding-taking ofE-GovernanceTraining Centers Inconsistencyinnominationsofparticipants

2. Component Two: Empowering teachers Lack of facilities to implement the knowledgegained through training.

3. Component Three: ICT to 168 schools No. of students studying ICT were muchlower than those who were not studying. Courses were very similar with that ofRGoB-duplication

4. Component Four: Enhancing Employableskills in a Knowledge Based Society Only basic courses were offered.Certification courses stopped after the end ofproject.Certainly didn’t create the employment and helpedyouth to gain prospective knowledge or skills.

5. Component Five: Reaching the Unreached PLS machines were lying idle.Learning Stations were not even opened at some sites.Some sites hardly any visitor.Location of PLS machines in Gewog Centers wasinappropriate.lack of appropriate monitoring and supervision as toopening and closing of the machines

RAA RECOMMENDATION Need for a clear legal and policy framework for engagingprojects that were within the capacity of governmentagencies/local firms Need for proper assessments to identify the actual requirementfrom the projects The government should encourage procurement practice thatpromotes competition and provides value for money The Master Agreement should be comprehensive andcomplete in all material respects Services rendered by the projects should be properly evaluated Proper supervision and monitoring of the works carried out bythe projects


NIIT submitted a proposal to the Government offering its Services. GNHC Secretary, MoFAThimphu, to explore possibilities of GoI financing the proposal in addition to their 10 th Plan commitment. Project Conceptualization 14th Feb, 2009 MoU signed & NIIT was identified as the Education Partner, for implementingProject. 17th Feb, 2009

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