MAPPING THE SECOND-LEVEL DIGITAL DIVIDE: CRITICAL POLICY PERSPECTIVES ON E-GOVERNANCE IN PUNJAB, 2018-2025

Abstract

This paper studies e-governance in Punjab from 2018 to 2025 using the perspective of the second-level digital divide, contending that while digital reforms have increased accessibility and infrastructure, the issue of inequality in capabilities has not been adequately dealt with. Using desk research and interpretive analysis of Punjab IT Policy 2018, Punjab Digital Policy 2021-2025, official institutional documents, PBS stats, and PTA figures, the paper focuses on the problem of accessing the available technology in a functional manner, with special emphasis on low-literacy levels and marginalized citizens in rural, semi-urban areas. It is argued that the e-governance model in Punjab is based on technocracy that links digital presence with digital inclusion and ignores literacy levels, confidence, language problems, procedural complexities, and costs of mediation (Punjab, 2018) ((PTA), 2025). In addition, it is also shown that despite high mobile and broadband penetration, there are no capabilities or autonomy necessary to interact with the digital public services online. This paper is structured along three themes – connectivity versus capability, portal design and cognitive barriers, and the informal intermediary market that allows citizens to conduct digital transactions at the cost of hidden expenditures ((PITB), 2023). The present study is based on the theories of Resource and Appropriation Theory of Van Dijk and Capability Approach of Sen to analyze how literacy and digital literacy act as conversion factors to make digital services actual capabilities. The study recommends that evaluation of e-governance in Punjab must take into account independent usage, aided usage, readability, accessibility, and cost of using the services.