Good Governance — Metrics, Indices & Global Rankings

Key Concepts

Governance quality is measured through composite indices that allow cross-country comparison and track progress over time. For UPSC GS2, candidates must understand the methodology, publishers, indicators, and India's performance across these frameworks. These indices also inform policy making and attract foreign investment.

1. World Bank Worldwide Governance Indicators (WGI)

Published annually by the World Bank (first published 1999), the WGI aggregates data from 35 different data sources to measure governance quality across 214 economies.

The six aggregate WGI dimensions:

WGI scores range from approximately -2.5 (weak) to +2.5 (strong). The WGI is a perception-based index — it reflects expert assessments and surveys, not objective administrative data.

2. Transparency International — Corruption Perceptions Index (CPI)

Published annually by Transparency International (Berlin) since 1995, the CPI measures perceived levels of public sector corruption in 180 countries. Scores range from 0 (highly corrupt) to 100 (very clean).

India's CPI performance:

India ranked 91st out of 182 countries in CPI 2025 (Transparency International, released Jan–Feb 2026), with a score of 39 — an improvement from 96th (score 38) in 2024. The global CPI average dropped to 42 in 2025 — the lowest since the current methodology was introduced; India's score remains below the global average. 122 of 182 countries score below 50.

Top performers: Denmark (89, 8th consecutive year at top). South Asia context: India performs below neighbours like Bhutan but above Pakistan and Bangladesh. Note: The 2025 edition covers 182 countries (up from 180 in earlier editions).

3. Ease of Doing Business (Discontinued) and B-READY

Ease of Doing Business (EoDB) — World Bank

The EoDB index was published annually from 2003 to 2020. India made dramatic improvements, rising from 142nd rank (2014) to 63rd rank (2020). However, in September 2021, the World Bank permanently discontinued the EoDB, following an independent review that found data irregularities — scores for China, UAE, Saudi Arabia, and Azerbaijan had been artificially manipulated in 2018–2020.

Business Ready (B-READY) — World Bank

The World Bank launched B-READY as the successor index in 2024. Key differences from EoDB:

• Evaluates regulatory framework, public services, and operational efficiency across the business lifecycle
• Includes labour rights and environmental sustainability (absent in EoDB)
• First B-READY report (2024) covered 50 economies (India included in later phases)
• More comprehensive and transparent methodology than EoDB

4. Global Innovation Index (GII)

Published annually by the World Intellectual Property Organization (WIPO) in collaboration with INSEAD and Cornell University. Covers 133 economies across 80 indicators in two sub-indices: Innovation Inputs and Innovation Outputs.

India's GII trajectory:

India ranked 38th in GII 2025 (WIPO) — a rise of 43 positions since 2015 (rank 81 in 2015). India continues to lead Central and Southern Asia and is the top lower-middle-income economy; two clusters in global top 30 (Bengaluru 21st, Delhi 26th). Strengths: ICT services, knowledge workers, domestic market scale. Weaknesses: R&D expenditure, infrastructure.

5. Good Governance Index (GGI) — India's Domestic Index

Published by DARPG (Department of Administrative Reforms and Public Grievances) under the Ministry of Personnel, Public Grievances and Pensions. The GGI is India's own composite tool to assess governance quality across states and UTs.

• First edition: 2019 (released on Good Governance Day, 25 December 2019)
• Second edition: 2021 (released 25 December 2021 by Home Minister Amit Shah)
• The 2023 edition was not released — DARPG announced it would instead release the next edition in 2025
• Covers 10 sectors and 58 indicators (2021 framework)

10 sectors in GGI: Agriculture and Allied Sectors, Commerce and Industries, Human Resource Development, Public Health, Public Infrastructure and Utilities, Economic Governance, Social Welfare and Development, Judiciary and Public Security, Environment, Citizen-Centric Governance

State groupings: Large states, small states, and UTs ranked separately. Top performer (2021): Gujarat (large states category)

6. UN E-Government Survey

Published every two years by the UN Department of Economic and Social Affairs (UNDESA). Measures countries' use of ICT for delivering public services.

• E-Government Development Index (EGDI): Composite of Online Service Index (OSI), Telecom Infrastructure Index, Human Capital Index
• 2024 (13th edition) covered all 193 UN Member States
• India has a very high OSI value of 0.8184 in 2024 — reflecting strong online service delivery
• The proportion of the global population with poor e-government access fell from 45% (2022) to 22.4% (2024) globally

7. UNDP Human Development Index (HDI)

Published annually in the Human Development Report by UNDP. Measures three dimensions: health (life expectancy), education (mean/expected years of schooling), and standard of living (GNI per capita).

India's HDI rank: 134th out of 193 countries (HDR 2023/24). India is in the Medium Human Development category. HDI value: 0.644. India ranks below neighbours Sri Lanka (78) and China (75).

2nd Administrative Reforms Commission (ARC) Recommendations

The Second ARC (2005–2009), chaired by Veerappa Moily, produced 15 reports. Key governance recommendations:

• Citizen's Charter mandatory for all public service agencies with time-bound service delivery
• Right to Information Act implementation strengthened
• E-governance as backbone of service delivery
• District administration reforms for effective last-mile delivery
• Ethics in governance — code of conduct for civil servants

Cross-paper relevance

• GS2 (primary) — Good governance: WGI six dimensions, Transparency International CPI (India rank 91, score 39, CPI 2025), UNDP HDI (rank 130/193, 2025 report), GGI, Ease of Doing Business → B-READY 2024; DARPG, CPGRAMS, PM Awards for Excellence; PRAGATI platform
• GS4 (Ethics) — Ethics in public governance; conflict of interest; accountability; probity; code of conduct for public servants; "good governance" as ethical imperative
• Essay — "Good governance: India's unfulfilled promise"; "From government to governance — the role of citizens, CSOs, and institutions"

Recent Developments (2024–2026)

NITI Aayog SDG India Index 2023-24 — India's Composite Score Rises to 71

NITI Aayog released the SDG India Index 2023-24 (July 2024), measuring all states and UTs on progress towards the 17 Sustainable Development Goals. Key findings:

UPSC angle (Prelims 2027): SDG India Index 2023-24: India composite score 71; Kerala and Uttarakhand top (79); Bihar lowest (57); 32 states/UTs are 'Front Runners'. Published by NITI Aayog. Mains GS2: sustainable development governance, state-level variation, SDG localisation.

e-Courts Phase III — Approved and Implementation Underway (2023–2027)

The Union Cabinet approved e-Courts Phase III in September 2023, with an outlay of ₹7,210 crore (over 4× the Phase II allocation). Phase III runs from 2023 to 2027 under the Department of Justice and e-Committee of the Supreme Court.

Key Phase III objectives:

• Digital and paperless courts — digitisation of all court records including legacy records
• Universalisation of e-filing and e-payments across all court complexes via e-Sewa Kendras
• Cloud-based data repository for secure retrieval of digitised records
• Expansion of video conferencing to courts, jails, and hospitals
• Live streaming and electronic evidence handling

Implementation status (as of May 2026): Under the Wide Area Network (WAN) project, 99.5% of court complexes connected with 10–100 Mbps bandwidth. DigiLocker integration for document submission and e-payment gateways operational across district courts in all major states. The e-Courts project is the largest ICT-in-governance programme for judicial infrastructure in India.

UPSC angle (Mains 2026): e-Courts Phase III (2023–27, ₹7,210 crore); WAN connectivity at 99.5% court complexes; paperless courts initiative; how e-governance improves access to justice and reduces pendency.

8th Pay Commission — Constituted November 2025

The 8th Central Pay Commission was constituted by gazette notification on 3 November 2025. Key details:

The 8th Pay Commission will review pay, allowances, pensions, and service conditions for approximately 50 lakh central government employees and 65 lakh pensioners.

UPSC angle (Prelims 2027): 8th Pay Commission constituted 3 November 2025; Chairperson: Justice Ranjana Prakash Desai; reference date 1 January 2026; implementation likely 2027. Note: this is a governance/service conditions reform, not yet implemented. 7th Pay Commission (2016 implementation) is the last implemented revision.

HDI 2025 — India's Rank Improves

The 2025 Human Development Report (UNDP) placed India at rank 130 out of 193 countries — an improvement from 134 in 2023-24. Key progress indicators:

• Life expectancy rose to 72 years (2023) — up from 58.6 years in 1990
• HDI value improved from 0.644 (2022 report) with continued gains
• India's HDI has increased by over 53% since 1990, growing faster than global and South Asian averages

UPSC angle: India remains in the medium human development category. Despite strong GDP growth, the HDI ranking reflects that economic growth must be accompanied by investment in health and education to drive human development.

Good Governance Index (GGI) — 2023 Edition Cancelled

The government cancelled the release of the GGI 2023 edition — scheduled for Good Governance Week (December 2024). Officials stated that 2023 data would appear outdated by launch time; a fresh GGI exercise was planned for December 2025. As of May 2026, the 2025 edition has not been publicly released.

Most recent rankings: GGI 2021 — Gujarat, Maharashtra, and Goa topped the composite rankings. Gujarat recorded a 12.3% increase, Goa 24.7% increase over GGI 2019 indicators.

Significance: The GGI discontinuity itself is a governance accountability concern — an index meant to create peer pressure among states for good governance cannot fulfil its function if data is withheld or delayed.

UN E-Government Development Index (EGDI) — 2022 Data

India's EGDI 2022 score: 0.59; rank 105/193 (down from 100th in 2020). The EGDI has three components: Online Service Index (OSI), Human Capital Index (HCI), and Telecommunications Infrastructure Index (TII). India scores relatively higher on OSI (digital government services) but lower on TII (infrastructure reach to all citizens).

The 2024 EGDI survey was released; India's OSI value of 0.8184 is very high — reflecting strong digital service delivery (DigiLocker: 67.63 crore users, March 2026; UMANG: 2,400+ services).

Logistics Performance Index (LPI) 2023 — India Rises

India rose to 38th out of 139 countries in the World Bank's Logistics Performance Index 2023 — up from 44th in 2018 and 54th in 2014. This is directly tied to:

• PM Gati Shakti National Master Plan (October 2021)
• National Logistics Policy (September 2022) — target: reduce logistics cost from 13-14% of GDP to global benchmark
• LEADS index for state-level logistics tracking
• ULIP (Unified Logistics Interface Platform): 30+ digital systems integrated, 160 crore digital transactions

World Bank Governance Indicators (WGI) — India Context

India's WGI scores have shown gradual improvement across most dimensions. Government Effectiveness and Regulatory Quality scores reflect the DBT-driven service delivery transformation. Control of Corruption scores reflect persistent challenges despite institutional strengthening.

Key governance measurement gap: All global indices (WGI, CPI, EoDB) rely partly on perception surveys of experts and businesses — not direct citizen experience. India's actual governance quality for the poorest citizens is better captured by MGNREGS social audits, CPGRAMS data, and PRI devolution indices.

PYQ Relevance

• 2023 GS2 Q8: "E-governance, as a critical tool of governance, has ushered in effectiveness, transparency and accountability in governments. What inadequacies hamper?" — GS2 2023 Q8
• Good governance indices (CPI, WGI, GGI), DARPG role, Ease of Doing Business methodology, and 2nd ARC recommendations are recurring themes in GS2 Mains; prepare these as standard analysis topics.
• The WGI six dimensions (voice/accountability, political stability, government effectiveness, regulatory quality, rule of law, control of corruption) are the standard framework for answering "what are key indicators of good governance?" questions.

Exam Strategy

Must-know rankings (latest):

• CPI 2025: India 91st (score 39) — Transparency International, 182 countries; released Jan–Feb 2026
• GII 2025: India 38th — WIPO
• EoDB: Discontinued 2021; replaced by B-READY (2024)

Analytical framework for Mains: Indices are useful for benchmarking but have limitations — perception-based (WGI, CPI), methodology opacity, and susceptibility to gaming (EoDB manipulation). India should develop robust domestic metrics (like GGI) while engaging constructively with global indices for policy learning.

Key distinction: WGI is academic/policy research; CPI is advocacy tool (Transparency International is an NGO); GII is IP-focused; GGI is government's own assessment. Each has a different purpose and audience.

Link to Ujiyari.com for the latest GGI 2025 release and India's HDI performance in the 2025 Human Development Report.

Vocabulary

Holistic

• Pronunciation: /həʊˈlɪs.tɪk/ (British; American /hoʊˈlɪs.tɪk/)
• Definition: Relating to or concerned with complete systems rather than with their individual parts; characterised by the belief that the whole is greater than the sum of its constituent parts and must be understood in its entirety.
• Root: Greek holos = whole; coined 1926 by Jan Christiaan Smuts (holism + -istic) in Holism and Evolution
• Origin: Formed 1926 from "holism" + the suffix "-istic". "Holism" was coined by South African statesman Jan Christiaan Smuts in his book Holism and Evolution (1926), from Greek "holos" meaning "whole".
• Part of Speech: adjective
• Word Family: holism (n), holistically (adv), holist (n), holistic (adj), holism (n)
• Usage: A truly holistic development paradigm must transcend the narrow metric of GDP growth and integrate ecological sustainability, social equity and human capability, for governance fails when it optimises one dimension of well-being while neglecting the interdependent whole.
• Synonyms: integrated, comprehensive, all-encompassing, integrative, whole-systems, aggregate
• Antonyms: atomistic, reductionist, fragmentary, piecemeal
• Mnemonic: Hear the "whole" hiding inside holistic - from Greek holos, "whole": a holistic view sees the entire whole, not isolated parts.

Empirical

• Pronunciation: /ɪmˈpɪrɪk(ə)l/
• Definition: Based on, verifiable by, or derived from observation, experience, or experiment rather than from theory, speculation, or pure logic. It denotes knowledge grounded in real-world evidence.
• Root: Greek empeirikos = experienced; en- = in; peira = trial, experiment; Latin empiricus; English -al suffix
• Origin: From Latin empiricus, from Greek empeirikos "experienced" (from empeiria "experience," from en- "in" + peira "trial, experiment"), + the English suffix -al; first used in English in the 1560s in medical contexts.
• Part of Speech: adjective
• Word Family: empirically (adv), empiricism (n), empiricist (n), empirics (n pl)
• Usage: Sound public policy must rest on empirical evidence drawn from rigorous field surveys and outcome data, rather than on the untested assumptions or ideological intuitions of policymakers.
• Synonyms: experiential, observational, evidence-based, factual, experimental, pragmatic
• Antonyms: theoretical, speculative, conjectural, hypothetical
• Mnemonic: An EMPIRE is built on real conquests you can see and count, not on dreams; likewise, EMPIRICAL knowledge rests on what is actually observed and tested. Root link: Greek 'peira' (trial) also gives us 'experience' and 'experiment'.

Multifaceted

• Pronunciation: /ˌmʌltiˈfæsɪtɪd/
• Definition: Having many aspects, sides, or dimensions. Used of a problem, role, personality, or phenomenon that is complex and cannot be reduced to a single dimension.
• Root: Latin multus = much, many (multi-); French facette (dim. of face) < Latin facies = form, appearance
• Origin: From multi- (combining form of Latin multus 'much, many') + faceted, from facet, from French facette, diminutive of Old French face 'face, appearance', from Latin facies 'form, appearance' (related to facere 'to make'). Originally literal (gemstones cut with many polished surfaces); figurative sense 'having many aspects' from the 1870s.
• Part of Speech: adjective
• Word Family: facet (n.), faceted (adj.), multifaceted (adj.), faceting (v. pres.p), facets (n. pl.)
• Usage: Poverty in India is a multifaceted challenge, for it is simultaneously rooted in landlessness, inadequate human capital, social exclusion and regional disparity, and therefore no single welfare scheme, however generous, can dismantle it in isolation.
• Synonyms: many-sided, multidimensional, complex, varied, manifold, versatile
• Antonyms: one-dimensional, simple, uniform, monolithic
• Mnemonic: Multi- (many) + facet (a flat face of a cut diamond): picture a diamond with many shining faces, each one a different aspect catching the light.

Panacea

• Pronunciation: /ˌpæn.əˈsiː.ə/
• Definition: A supposed remedy that cures all diseases, problems, or difficulties; a universal cure-all. In formal usage it is most often deployed negatively, to deny that any single measure can solve every aspect of a complex problem.
• Root: Greek pan = all; akos = remedy, cure → panakeia = universal remedy; via Latin panacea
• Origin: From Latin panacea, from Greek panakeia 'universal remedy', from panakes 'all-healing', from pan 'all' + akos 'remedy, cure'. First attested in English in the mid-16th century.
• Part of Speech: noun
• Word Family: panacean (adj, rare); No standard derived forms beyond the base noun
• Usage: While welfare schemes and direct benefit transfers can cushion acute distress, treating cash transfers as a panacea for structural poverty risks diverting attention from the deeper imperatives of land reform, quality public education and durable job creation.
• Synonyms: cure-all, universal remedy, catholicon, elixir, nostrum, magic bullet
• Antonyms: affliction, malady, bane, scourge
• Mnemonic: Break it into Greek roots: PAN (all, as in "pan-Indian") + ACEA (from akos, "cure") = a cure for ALL. Picture a single "pan" of medicine claimed to heal every ailment.

Pragmatic

• Pronunciation: /præɡˈmætɪk/
• Definition: Dealing with problems sensibly and realistically in a way that is based on practical rather than theoretical or idealistic considerations; concerned with actual outcomes rather than abstract principles.
• Root: Greek pragma = deed/act (genitive pragmatos); pragmatikos = relating to fact; Latin pragmaticus = practical
• Origin: From Latin pragmaticus 'skilled in business, practical', from Greek pragmatikos 'relating to fact or action', from pragma 'a deed, an act' (genitive pragmatos), from prassein/prattein 'to do, to act'. Entered English in the 16th century.
• Part of Speech: adjective
• Word Family: pragmatism (n), pragmatist (n), pragmatically (adv), pragmatics (n), unpragmatic (adj)
• Usage: Rather than pursuing ideologically rigid prescriptions, a pragmatic approach to welfare delivery weighs administrative feasibility, fiscal constraints and ground realities, allowing the state to calibrate policy to outcomes that genuinely improve citizens' lives.
• Synonyms: practical, realistic, matter-of-fact, sensible, hard-headed, down-to-earth
• Antonyms: idealistic, impractical, dogmatic, utopian
• Mnemonic: Think of a "PRAGMATIC" person as one who cares about PRA(c)tical ACTion — rooted in Greek pragma, "a thing DONE"; they value deeds and results, not lofty theories.

Paradigm

• Pronunciation: /ˈpærədaɪm/
• Definition: A typical example, pattern, or model of something; especially, an overarching framework of assumptions, concepts, and methods within which a discipline operates and which can undergo fundamental change (a "paradigm shift").
• Root: Greek para- = beside; deiknunai = to show → paradeigma = pattern, example; via Late Latin paradigma
• Origin: From late Latin paradigma, from Greek paradeigma "pattern, example", from paradeiknunai "to show side by side", from para- "beside" + deiknunai "to show". In English since the 15th century.
• Part of Speech: noun
• Word Family: paradigmatic (adj), paradigmatically (adv), paradigm shift (compound n), paradigms (pl n)
• Usage: India's developmental discourse has gradually shifted from a paradigm of state-led, growth-centric planning to one premised on sustainable, rights-based and inclusive development, reflecting a deeper reordering of national priorities.
• Synonyms: model, archetype, pattern, exemplar, prototype, framework
• Antonyms: aberration, anomaly, exception
• Mnemonic: Break it as "para-" (beside) + "-deigma" (to show) — a paradigm is the standard you "show beside" everything else to judge it; the model held up alongside as the benchmark.

Benchmarking

• Pronunciation: /ˈbentʃˌmɑːkɪŋ/
• Definition: The process of measuring an organisation's policies, programmes, products, or services against recognised standards or best practices — used in public governance to evaluate performance, identify gaps, and set improvement targets.
• Root: Coined/Modern: from surveyor's benchmark (fixed reference mark); management sense coined at Xerox Corporation, 1979.
• Origin: From benchmark — originally a surveyor's mark on a fixed point of reference used in levelling. Adopted in quality management (Xerox Corporation, 1979) and subsequently in public sector performance evaluation.

• Part of Speech: noun (gerund); also the present participle of the verb "benchmark" (transitive)
• Word Family: benchmark (n/v), benchmarked (adj), benchmarks (n pl), benchmarking (n/v pres.p), benchmarker (n)
• Usage: By benchmarking the delivery of welfare schemes against the best-administered States, NITI Aayog has converted competitive federalism into a tool that nudges laggard provinces towards higher standards of governance.
• Synonyms: standard-setting, comparison, gauging, calibration, evaluation, yardsticking
• Antonyms: guesswork, estimation, improvisation
• Mnemonic: Picture a surveyor's "bench mark" cut into a wall as the fixed reference line; benchmarking is laying every rival's performance against that same line to see who measures up.

Key Terms

Aspirational Districts Programme

• Definition: The Aspirational Districts Programme (ADP) is a NITI Aayog-anchored governance initiative, launched in January 2018, that aims to rapidly transform India's most under-developed districts by tracking their incremental ("delta") progress across 49 key performance indicators spanning five socio-economic themes.
• Context: Launched by Prime Minister Narendra Modi in January 2018, the ADP began with a baseline ranking of 115 districts and is now run across 112 Aspirational Districts (covering at least one district per major State). Districts were selected using a composite index of deprivation across health, education, basic infrastructure and other parameters, with several being affected by Left-Wing Extremism. The programme deliberately avoids fresh budgetary allocations, instead seeking to converge existing Central and State schemes and inject competition through real-time, data-driven monthly rankings on the Champions of Change dashboard. It was extended to the block level via the Aspirational Blocks Programme (500 blocks), launched on 7 January 2023.
• UPSC Relevance: This is a foundational GS2 governance topic that underpins questions on government schemes, cooperative and competitive federalism, and outcome-based monitoring. For Prelims, aspirants should remember the anchoring body (NITI Aayog), launch year (2018), the "3 Cs" framework, the count of 49 indicators across 5 themes, and the distinction between the Districts and Blocks programmes. For Mains, it is high-value material for answers on minimising the role of government versus enabling delivery, data-driven governance, real-time monitoring, and reducing regional disparities; the UNDP's 2021 endorsement (recommending global replication) is a useful evaluative point.

Good Governance

• Pronunciation: /ɡʊd ˈɡʌvənəns/
• Definition: A standard of public administration characterised by eight core attributes identified by the United Nations Development Programme (UNDP) and the World Bank: (1) Participation, (2) Rule of Law, (3) Transparency, (4) Responsiveness, (5) Consensus-orientation, (6) Equity and Inclusiveness, (7) Effectiveness and Efficiency, and (8) Accountability — contrasted with arbitrary, corrupt, or exclusionary governance.
• Context: The concept gained global currency through the World Bank's 1989 report on Sub-Saharan Africa (From Crisis to Sustainable Growth) which argued governance failure — not just resource scarcity — caused underdevelopment. UNDP (1997) formalised the 8 characteristics. In India, the 2nd Administrative Reforms Commission (2005–2009, chaired by M. Veerappa Moily) produced 15 reports on governance reform covering citizen charters, e-governance, ethics, RTI, centre-state relations, and public order. The Annual Report of the Ministry of Personnel monitors governance indices.
• UPSC Relevance: GS2 Governance — Prelims: UNDP's 8 characteristics; World Bank's Worldwide Governance Indicators (WGI) — 6 dimensions (Voice & Accountability, Political Stability, Government Effectiveness, Regulatory Quality, Rule of Law, Control of Corruption); India's NITI Aayog Governance Index (Good Governance Index — released annually on Good Governance Day, 25 December); Citizen's Charter (P.C. Hota Committee recommendation, 2011); 2nd ARC recommendations. Mains: service delivery failures despite economic growth; e-governance as enabler; civil society and participatory governance; Right to Service Acts (various states); governance vs government distinction; accountability mechanisms.

Citizen's Charter

• Pronunciation: /ˈsɪtɪzənz ˈtʃɑːtər/
• Definition: A written document issued by a public organisation committing to specific service standards — including timelines, quality, and grievance redressal mechanisms — and acknowledging citizens' rights to these services; a voluntary accountability instrument that empowers citizens to claim services as a right rather than a favour.
• Context: Originated in the UK under Prime Minister John Major's Citizen's Charter programme (1991). Introduced in India by the Department of Administrative Reforms and Public Grievances (DARPG) — the 2nd ARC (Report 12, 2008) recommended making it statutory with penalties for non-compliance. Currently voluntary in India. The Right to Service Acts enacted by states (Bihar first, 2011; now 25+ states) give legal enforceability to specific service timelines with financial penalties on defaulting officials.
• UPSC Relevance: GS2 Governance — Prelims: UK origin (1991); India — voluntary, issued by DARPG; 2nd ARC Report 12 (2008) recommended statutory status; Right to Service Acts (statutory equivalent — Bihar 2011 first). Mains: limitations of voluntary charters (no enforcement, rarely updated, unknown to citizens); comparison with statutory RTI; states' Right to Service Acts as improvement; citizen as consumer vs citizen as rights-holder.