Draft
Department of Posts
Ministry of Communications and information
Technology,
Government of India
Preamble
Postal
services originated out of the need for conveying the written word. They
evolved over the ages, and grew in scope, spread and complexity. The post,
today, is a ubiquitous network which serves the world by connecting individuals
and communities, promoting trade and commerce, and reaching financial services
to the common man.
Despite
the advent of the digital revolution, post is still the most economical and
accessible among the different modes of communication available to the public.
The mandate of the postal sector is three dimensional - being a channel for
moving information, goods and money. This mandate makes postal services a tool
of development, an enabler of commerce and a facilitator of the aspirations of
the people.
The
current postal environment is complex and dynamic. Based on international
experience, the status and direction of the postal sector can be summarized as
under:
¨ Declining letter mail
volumes, increasing electronic substitution, and growing competition.
¨ Postal Administrations
which concentrate on the core business of mail are struggling for survival,
while those which diversified into nonmail businesses like financial services
and e-Commerce are successful in negotiating the changed environment.
¨ Postal administrations
worldwide are increasing their productivity by employing state of the art
technology.
¨ Though the
principle of separation of regulator and operator is widely discussed, it is
yet to find universal acceptance.
¨ Postal markets in
emerging economies continue to be fragmented and unorganised.
¨ New business models
are evolving from emerging economies, with increased level of resource sharing
and cooperation among various service providers.
The
environment, thus, poses overwhelming challenges to the postal sector. However,
it has also thrown up many opportunities. Potential exists today for an
overarching role for the postal sector in facilitating internet based commerce,
as a trusted third party who provides a secured space for transactions. 'Cash
on delivery services', fulfillment services for lightweight packets and
just-in-time shipment of goods are some of the services for which demand is
growing. The postal sector needs to be creative and innovative to capitalize on
these opportunities.
The
National Postal Administration forms the core of the postal sector. A strong
and self-sufficient National Postal Administration is essential for the
survival of the sector, as this alone has a countrywide distribution network,
which can be leveraged for profitable partnerships involving the private sector
or other government agencies.
The postal
market in India is governed by the Indian Post Office Act 1898. The Act
entrusts the Central Government with the exclusive right to collect and deliver
letters, which is implemented through the National Postal Administration. The
term 'letter', however, is not defined in the Act. A large number of courier
operators are present in the postal market in India. They are free to handle
documents, parcels and other items of mail which -do not fall under the
category. 'letter'. No authentic data exists regarding the number of such
operators or the volume of mails they handle.
Entry and
exit in the postal sector are free. However, there are issues related to
governance, standardization and quality of service which call for institutional
reforms. Such reforms are essential to allow free interplay of market forces
and the consequent stabilization of the postal market. They are also required
to ensure the delivery of efficient and affordable universal postal services,
which is essential for the geographical and social cohesiveness of the country.
Effective
governance of the postal market has proved to be a key feature of reform in
advanced countries. Hence any postal sector in developing countries also
requires an effective governance mechanism.
Another
issue that needs attention at the policy level is the fragmented lCT
environment of the postal sector, which is contributing to underutilization of
resources on many fronts. The absence of organized efforts in Human Resource
Development and Planning, and the non-adoption of modern practices in this area
are also concerns, as they deprive the postal sector of skilled workforce.
The postal
sector in India is in urgent need of legislative and institutional reforms to
build the foundation for its future growth. Governance, market development,
definition of universal service obligation and standardization of leT practices
are important elements in this reform process.
The
National Postal Policy has been developed to address the systemic challenges
facing the postal sector and to enhance contribution of the sector to the
national economy. It recognizes the specific needs, expectations and service
requirements of governments, customers, postal operators and other stake
holders. The Government will use the Policy to provide necessary guidance and
direction to the postal sector with the aim of maximizing public good.
Guiding Principles
a) Development of an organised and well
governed postal sector.
b) Provision of Universal Postal Services
countrywide.
c) Promotion of partnerships between
private and public sectors.
d) Provision of quality services at
affordable prices.
e) Adoption of inclusive and transparent
processes for policy formulation, implementation and monitoring ..
Vision
Organised and well governed postal sector, recognised as contributing to the
economic and social development of the nation.
Mission
¨ To maximise public good by
providing reliable, efficient, secure and affordable postal services
¨ To offer mail, courier,
express, parcel, logistics, e-commerce and remittance services to the entire
population of the country.
¨ To promote the economic and
social connectivity of the people in the country.
¨ To foster sustainable
development of the postal sector through an inclusive and transparent
institutional framework, good governance and adoption of fair common standards
and technological innovation.
¨ To promote cooperation,
interaction, resource sharing and fair competition among stakeholders.
¨ To adopt global best
practices of Human Resources Management for developing a skiiied, committed and
motivated workforce.
Objectives
1. Developing an organised and well
governed postal sector
Better
governance in the postal sector and strengthening of the universal postal
service will benefit citizens, businesses and governments.
Strategies
a. To provide efficient and effective basic
postal services at affordable prices to all sections of the population over all
geographies.
b. Leverage the network, infrastructure and
expertise of the National Postal Administration for the growth and development
of the postal sector.
c. Develop postal statistical indicators and
include relevant postal indicators among broader infrastructure development
indicators.
d. Provide holistic support to micro, small
and medium postal service providers and encourage entrepreneurship in the
sector.
e. Integrate programs for development of the
postal sector with National lCT Policy Framework and National Development
Plans.
f. Promote the role of postal sector
in achieving Millennium Development Goals as identified by the United Nations
2. Augmenting access to postal
services
Access to
postal services is critical for disseminating information, conr1ecting individuals
and communities, and facilitating trade aild commerce. Appropriate and
affordable technology solutions are to be adopted to augment the access.
Strategies
a. Ensure basic postal services at
affordable prices.
b. Upgrade both capacities and capabilities
of the weaker links in the postal network to improve their effectiveness.
c. Integrate the physical network with
electronic services to provide value added products and services.
d. Implement a programme to encourage the
community, the civil society and the private sector to participate in
provisioning of postal servIces.
e. Recognise post offices as primary public
access points for Internet services,
e-Government services (tax, procurement, public utilities, passports, birth
certificates, driving permits, pensions, social security benefits etc.) and
e-Commerce applications (online product/service ordering, delivery, payments,
private utilities/services etc.)
f. Organise campaigns for increasing
public· awareness on the developmental role of the sector.
3. Enhancing the quality of service.
Enhanced
quality of service at affordable price is critical to the survival of the
Postal Sector. Quality of service is reflected in the degree of professionalism
with which postal service providers fulfil the changing needs of customers.
Improving the quality of postal services calls for investments in
infrastructure, adoption of ICT, and raising a well-trained and motivated
workforce.
Strategies
a. Set up and enforce minimum and fair
standards in the postal sector, in line with global trends and documented best
practises.
b. Develop quality measurement systems
applicable to all postal operators.
c. Utilise ICT in the provisioning of
postal services, especially in areas like automation of mail processing, and
adopt modern practices like data and address management systems and digital
stamping.
d. Enhance mail security by sharing
knowledge, experience and best practices with National Postal Administrations
of other countries and adopting statutes to enforce appropriate governance
standards.
e. Develop a modern transportation network
to support countrywide conveyance and delivery of mail.
f. Enhanced cooperation with Universal
Postal Union, APPU, SAPU and other similar bodies for evolving common global
and regional approaches for improving postal services.
4. Developing postal and supporting
infrastructure
Postal
infrastructure consists of elements like distribution networks, PIN code based
address system, mail access points, automated mail sorting systems and data
management systems. Supporting physical infrastructure on the other hand
includes roads, electricity, and general utilities. Service quality and cost of
operations are directly related to the state of postal and its supporting
infrastructure.
Strategies
a. Define National
Postal Infrastructure and recognise it as essential Public Infrastructure.
b. Enable National
Postal Administration through legal and institutional framework to create
National Postal Infrastructure.
c. Take steps to
attractjnvestment to facilitate expansion of National Postal Infrastructure in
rural and underserved areas.
d. Identify National
Postal Administration as the repository of all postal addresses and support it with
required legal provisions.
e. Define addressing
standards. Promote usage of PIN Codes.
f. Formulate
guidelines for infrastructure sharing and partnerships.
g. Implement strategies
to reduce the carbon footprint of the postal sector, including harnessing
renewable energy sources like solar, biomass and wind.
5. Promoting the use of lCT in
provisioning of postal services
ICT offers
immense opportunities to the postal sector to reduce cost, improve efficiency and
enhance quality of service. Some of the common areas of ICT deployment in
postal sector are automation of mail processing, mail coding, tracking of mail
and ERP solutions. Interoperability and standardization are two critical
requirements that need to be met while developing and deploying ICT solutions
in the postal sector.
Strategies
a. Identify and analyse the
emerging technologies and business models to help the postal sector achieve
sustainability in the growing digital and mobile economies.
b. Promote, stimulate and
support the development of customised ICT applications for the postal sector.
c. Minimize usage of paper
and paper products in postal sector by promoting the use of relevant ICT
solutions.
d. Create centres of
excellence for training, research and development of postal ICT products.
e. Create and maintain an
open forum for consultation and dialogue on matters of ICT in the postal
sector.
f. Create a
"Postal lCT and R&D Fund" to ensure adequate flow of investment
into postal R&D to enhance utilisation of ICT in the postal sector.
6. Promoting utilisation of postal
services to deliver national programmes and
e-services.
The
addition of lCT capabilities to its traditional strengths of last mile reach
and trust of the masses will make the postal network the ideal choice to
deliver e-governance and
e-commerce. The e-service solutions will improve the speed and efficiency of
service delivery to the citizens and institutions. The National Postal
Administration is the ideal implementation partner for government agencies in
growth and poverty reduction programmes.
Strategies
a. Identify challenges
in public administration for which solutions can be evolved by utilising the
postal system and develop adequate postal solutions to cope with them.
b. Promote cooperation
and synergy between government and private sector entities through the route of
Public Private Partnerships for achieving national goals and public welfare.
c. Transform post
offices into public delivery channel for services like
e-Commerce, e-Governance and financial inclusion programmes that involve a huge
customer-base.
d. Develop appropriate
National Address Database Systems and applications using Geographic Information
Systems (GIS) to support the delivery of
e-Services.
e. Provide a wide range
of e-enabled value added products and services.
7. Developing a framework for Human
Resource Development and Planning
Being a
labour intensive sector, the quality of manpower in the postal sector is the
key determinant of the quality of the services it offers. Untrained and
unskilled manpower not only increases the cost of operations but also affects
quality of service.
Strategies
a. Develop vocational
training programmes through institutional linkages between the postal and other
sectors and between the postal sector and educational institutions.
b. Introduce
specialised training courses for postal managers.
c. Develop compliance
mechanism for implementatioil of relevant government regulations relating to
employee benefits and workplace practices.
d. Create centres of
excellence with public private partnership for Research and Development.
e. Encourage alignment
of job qualifications and recruitment processes with the requirements of the
sector.
f. Empower each
employee with essential IT capabilities in areas of functional relevance
8. Promoting competition in the
provision of postal services
Fair
competition leads to consumer satisfaction through lower prices, more choice
and better quality of service. Efforts aie therefore required to promote
competition in the provision of postal services so as to maxi mise benefits to
customers, particularly those in rural and inaccessible areas.
Strategies
a. Create a market
responsive and well governed postal sector that aspires to maximize customer
satisfaction.
b. Develop a governance
and legislative system that promotes fair competition in the postal market and
offers customers ample choice.
c. Spell out modalities
for forming Special Purpose Vehicles (SPV) and Joint Ventures (JV) that would
Promote collaboration between the government and private sector in commerciai
ventures.
d. Promote adoption of
ethical practices in the postal sector and consider adopting internationally
recognized standards in this area.
9. Develop
an institutional and governance framework.
Appropriate
and responsive governance and institutional framework acts as the foundation
for the development of the postal sector. Rapid advances in information
technology as well as the converge!1ce of technologies and delivery platforms
offer· tremendous opportunities for the development of. the postal sector. The
backing of a robust governance and statutory framework will enable the postal
sector to capitalise on these opportunities.
Strategies
a. Set up a 'Postal Development Board' for
overall development and governance of Postal Sector. Besides this, the Board
will draw roadmap for unbundling of functions (operations, regulation and
policy making) in postal sector over a period of time, in order to develop an
organized, competitive, effective, well governed and commercial postal market
in India.
The Postal
Development Board will be chaired by Secretary (Posts) and will have Secretary
(Deity), Secretary (Commerce), Secretary (Economic Affairs) and two members
from Postal Services Board as full time members and part time members from
other stakeholder bodies and Ministries.
b. Amend the Indian Post Office Act 1898 to
meet the objectives of National Postal Policy.
c. Constitute Postal Advisory Council
comprising policy makers, postal operators, and other stakeholders. The council
will be an advisory body for effective implementation of the policy.
d. Create institutional framework for
continuous data collection from all . postal operators.
e. Adopt a pragmatic and equitable approach
for managing the USO.
f. Equip Department of Posts to handle
legislative issues in matters relating to exchange of goods through postal and
courier network and deal with international trade negotiations in WTO, GATS and
other multilateral and bilateral negotiations relating to the sector.
10. Strengthen the National Postal
Administration
The
National Postal Administration plays a critical role in the postal sector by
ensuring uninterrupted Universal Postal Services and providing affordable
postal and financial services to the less privileged sections of the
population. It operates in a complex environment of government control and
competition with private players. Strengthening the National Postal
Administration and transforming it into a reliable and trusted business partner
in the national economy is essential to maximize public good.
Strategies
a. Redesigning the
business structure on modern lines with the twin objectives of scaling up
traditional silos of business like mail, parcel, banking and insurance and
capitalising on emerging opportunities in areas like e-commerce, mobile-based
services, e-governance, express and logistics and financial retail services.
The restructured business silos to be given functional autonomy, wherever
required.
b. Operationalize all
post offices into a fully converged digital network.
c. Redesign Human
Resource policies (recruitment rules, reward and recognition schemes,
apprentice and internship programmes, specialized training programmes etc.) to
achieve the objectives of National Postal Policy.
d. Creating a business
environment that will enable and encourage all stake holders of the sector to
cooperate for mutual benefit.
e. Establish Post Bank
of India as the dominant vehicle of financial inclusion.
11. Financing of postal sector
Effective
implementation of objectives and strategies forming part of the policy calls
for adequate financing through the following:
Strategies
a) Create an environment for attracting international and
domestic investments.
b) Endeavour to place postal sector
projects within the ambit of consideration of entities that provide project
financing.
c) Provide a stable fiscal regime to
st!mulate investment and make . services more affordable.
12. Policy
Implementation
Department
of Posts, in consultation with stakeholders, may develop a monitoring and
evaluation framework for the National Postal Policy. A mechanism may be evolved
to monitor the impact of the Policy in terms of achieving the objectives.
a.
Establish a comprehensive Monitoring and Evaluation framework for the
implementation of the postal policy.
13. Conclusion
An
efficient postal sector is a force multiplier in the economy, promoting
communication and commerce, and maximising public good. In the information age,
the postal sector is ideally placed to bridge the Digital Divide. The National
Postal Policy aims to facilitate the emergence of a robust, organised and well
governed postal sector in India. The Policy aims at developing and deploying a
participatory and transparent framework for policy formulation, implementation,
monitoring and evaluation for the postal sector.
Thanks
NFPE GPO
