PFMS: Bringing Government Scale Adoption to Cardano by Trivolve Tech

This proposal transforms Cardano into an integral component of a state government’s criminal justice system, with the potential to exponentially benefit Cardano adoption.

The Police Force Management System (PFMS), developed by Trivolve Tech, is a state scale infrastructure layer that secures the entire chain of evidence across five distinct stages: Pre-Crime Evidence, Crime Investigation (FMS), Evidence Storage Facility (Malkhana), Prosecution, and the Courts.

The FMS component is already proven on Cardano and ranks among the top ten applications by transaction count on the Cardano transaction leaderboard. Building on this, the initiative is preparing for nationwide scaling across India, with active government support. If funded, this proposal will make PFMS ready for its first deployment, beginning with the Indian state of Telangana. The government will cover transaction costs, maintenance and infrastructure thereafter.

1. Problem Statement

The PFMS addresses a critical vulnerability in the criminal justice chain of evidence, where police records are managed by the same department that creates and uses them to prosecute crimes. In the existing systems, police records pass through five distinct stages: pre-crime gathering, investigation, evidence storage, prosecution, and courtroom presentation. The associated records can be altered, backdated, deleted, or quietly swapped at almost every step. This has created a trust gap in the justice system. Because the records cannot independently prove their own original state or creation time, defense attorneys need only raise a reasonable doubt about potential tampering. When the prosecution cannot adequately disprove these allegations, authentic evidence is frequently declared inadmissible. This problem is not confined to a single state or country, it is a challenge faced by justice systems around the world.

The PFMS tackles this challenge by creating a unified evidence layer that automatically fingerprints and timestamps every police record publicly on the Cardano blockchain. Operating across all five stages of a criminal case, an edge agent hashes raw data from cameras, control room call logs, station diaries, storage facilities, and court filings, binding the record together with the specific device identity and officer credentials on duty. Because only cryptographic fingerprints and no actual file content or personal data are committed to Cardano, no sensitive evidence ever leaves the department. When police records are later used in court, a verification application checks the cryptographic fingerprint against the immutable Cardano record to confirm tamper evident proof of evidence data within moments.

One stage of PFMS has already been deployed successfully on Cardano. With FMS, we have proven the core concept and are currently doing roughly 11,000 mainnet transactions per month or 156,000+ transactions in its lifetime. The PFMS is projected to generate over 1.5 million mainnet transactions in its first year, while returning 70% of verification revenue to the Treasury, 20% to core Cardano library maintenance and 10% to Trivolve Tech.

2. The Components that Make PFMS Work

Every record, at every stage of a case, passes through the same six engines.

Source Engine: CCTV, bodycams, call logs, ANPR readers, station diaries, armouries, the Malkhana and court filings each produce records of a different kind. Each kind of record is defined once, so the system always knows what a record is and what its timestamp means.

Capture Engine: The moment a record is written, a local agent takes its fingerprint (hash), reading from police systems without ever changing them. If a station loses its network, the agent keeps signing and queuing records in numbered order, then sends them to Cardano the moment connectivity returns. PFMS is built as a store and forward resilient system, which means an outage never breaks the chain, and a deleted record leaves a visible gap.

Identity Engine: Every device, such as a camera, recorder, terminal, etc. gets its own digital identity (DID), and every officer gets a credential showing their role, station and validity period. Personal data stays in existing systems (CCTNS, NAFIS and PIS).

Stamping Engine: Each fingerprint is signed together with the device that made the record and the officer on duty, so the record always shows who really made it. Fingerprints are then combined into a summarized string of hashes (a Merkle root), along with a count of the records expected, so silent hardware failures are caught.

Commit Engine: Cardano mainnet smart contracts enforce stage specific rules, such as capture limits, transit handovers, custody of Malkhana exhibits under QR linked tamper evident seals, and versioning of chargesheets and witness statements. The batch hashes are written permanently as an immutable reference.

Verification Engine: When a file or exhibit is requested, the verification layer recalculates its fingerprint and checks it directly against Cardano mainnet records. The prosecution and the defence receive the same evidence trail confirming whether the record matches, what changed if it does not, and whether the officer held valid authorization when it was stamped.

Stage modules: A record can start at any of the five stages in the chain of evidence, and from there it always goes through the six engines and onto Cardano, where it remains available for verification at any time. Each stage then has its own specific modules on top of these shared engines, built for the records that stage produces. In our first deployment, this core will connect around 3,500 facilities, 1.81 million devices, 113,000 personnel and 3.2 million evidence items, all linked into a single chain of evidence.

3. Revenue Streams and Reasoning for a Treasury Withdrawal

This proposal does not request Treasury funding to pay for software that is specific and proprietary to one Indian state. We request funding for building open source PFMS software as an open source evidence layer that runs on Cardano, is a public good and has significant potential use cases that reach beyond India and police work. Treasury funding is what puts the chain of evidence on Cardano mainnet, and keeps the core open for every project that follows. Simultaneously, this mitigates vendor lock-in concerns for the state government, making it a win-win-win for Cardano, the state government and Trivolve Tech.

As the end user of the PFMS implementation for Telangana the state government has committed to paying for the Cardano transaction fees resulting from PFMS usage and operating the off-chain deployment infrastructure.

Trivolve Tech and its subcontractors will not receive any fees or compensation from the state government for the development of the PFMS software. However, Trivolve Tech and its subcontractors will receive maintenance fees from the state government under a separate agreement, covering bug fixes, security updates, and ongoing technical support.

Each additional state that adopts PFMS will contribute its record volume to the Cardano blockchain, expanding on-chain activity and introducing more government institutions to the Cardano ecosystem.

4. Projected Impact on Cardano Mainnet Transaction Count

The projected transaction volume is driven by the continuous flow of operational data generated across the deploying policing and justice ecosystem in Telangana. Station activity, control room operations, traffic enforcement, evidence creation and custody transfers, forensic processes, prosecution records, and court side verification will all generate data that must be fingerprinted, time stamped and anchored on-chain.

The transaction volume is therefore distributed across multiple high frequency workflows that operate every day across the system. Each record, evidence event, movement, verification, and institutional interaction is committed on-chain in batches. This contributes directly to significant usage of Cardano mainnet. The batching is specifically designed to preserve evidence integrity, based on requirements by the state government about how quickly the evidence should be secured on Cardano. Batching intervals are randomised for security reasons rather than fixed, so no source commits on a predictable schedule. The projected transaction count is a result of this process.

Based on the expected volume of data that will be stamped across all of the above workflows, the system is projected to generate more than 1.5 million Cardano mainnet transactions in its first year. We expect this figure to grow with wider adoption. This projection is based on the state's own record volumes for the first year, one stage and one source at a time. It counts only the sources and record types that are part of PFMS at launch. As such, we consider it to be conservative. Based on current average cardano mainnet network activity, we estimate significant transaction growth from this project to be around 18.2%.

Revenue Beyond Transactions

PFMS will offer a paid service for authorized parties (e.g. registered defense lawyers, prosecution etc.) to verify the chain of evidence. This paid verification is an optional, fast tracked service. It will run alongside the regular verification process, not in place of it. Anyone who does not use it can still have records checked through the existing process. We commit the following usage of all revenue generated through this service: 70% will be returned to the Cardano Treasury, 20% to core Cardano library maintenance and 10% to Trivolve Tech. For this paid verification service, we have defined a pricing model. Each verification request carries a charge, starting at a minimum of USD 1.89 for the smallest and simplest requests. Pricing scales with the size, complexity and volume of the dataset being verified, so a single request involving large datasets or extensive case histories can reach several hundred dollars. To keep this fully transparent, every paid request is stamped through the verification layer on cardano mainnet with its fee and price tier, without any case details or requester identity.

5. Cardano 2030 KPI Alignment

The PFMS directly supports the Cardano 2030 KPIs and Strategic Pillars by driving substantial mainnet transaction volume, expanding decentralized identity usage, and generating recurring protocol and verification revenue.

KPI / Metric	2030 Target	PFMS Contribution	Alignment & Direct Impact
Monthly Transactions	>27 Million / month	~127,500 transactions/month in Telangana alone during Year 1 ( 1.53 Million annually)	Adds 18.2% to today's Cardano mainnet monthly transaction baseline. Grows further as more districts, record types, and additional Indian states are onboarded.
Annual Protocol Revenue	> 16 Million ADA	100% of transaction fees paid by the state government, plus 70% of data verification revenue returned to the Cardano Treasury	Transaction commit fees are paid continuously by the state government regardless of market cycles. Data verifications generate revenues for Cardano Treasury.

Pillar	How PFMS Aligns	Contribution Strength
Pillar 2: Adoption & Utility	Invisible Technology: Runs quietly in the background without altering existing officer workflows. Decentralized Identity: Registers ~5.1 Million DIDs across facilities, hardware, personnel, and evidence items, keeping sensitive personal data off-chain. Provenance: Secures end to end evidence chain provenance from pre-crime capture to court verdict.Open-source Incentives: 20% of revenue from verification layer is directed to maintaining the open-source Cardano libraries, supporting a sustainable builder ecosystem.	Primary
Pillar 4: Community & Ecosystem Growth	Demonstrates Enterprise Value: Scales chain of evidence tracking across an entire state government ecosystem. Reusable Model: Open source core engine allows easy expansion to rest of India's 35 states and union territories without additional build costs to the Treasury.	Strong
Pillar 5: Sustainability & Resilience	Financial Stewardship: The Cardano Treasury funds a one time build, while ongoing transaction fees, infrastructure, and maintenance are funded entirely by the state government.	Strong

6. Teams & Track Record

Trivolve Tech

This project is spearheaded by Trivolve Tech. Trivolve Tech is a blockchain and AI development studio focused on building and deploying enterprise grade solutions across government, healthcare, fintech, decentralized finance, and real world assets.

Over the past three years, our team has delivered 30+ projects for enterprises, governments, venture capital firms, and Fortune 500 companies. Our experience is not limited to prototypes or proof of concepts. We specialize in taking complex operational systems and deploying them at production scale, where reliability, auditability, security, and long term maintainability are critical.

Our track record on Cardano demonstrates this ability.

01 Trivolve Tech built a Forensic Management System that became the first ever enterprise grade project on Cardano to surpass both the 100,000 and 150,000 transaction milestones on Cardano Mainnet. This deployment demonstrates our ability to operate blockchain infrastructure at production scale.

02 We subsequently delivered another large-scale government deployment through IndianChain, bringing an entire Indian state government’s agriculture sector onto Cardano. Launched on Cardano Mainnet in September 2026, it has already processed over 15,000+ transactions and ranks among the top ten applications on the Cardano transaction leaderboard. This gives us direct experience in navigating government requirements, institutional stakeholders, operational workflows, and blockchain infrastructure within a live public sector environment.

03 Our experience also extends beyond software deployments. Trivolve Tech was the first blockchain company involved in the tokenization of granite on Cardano, giving our team practical experience in bringing physical real world assets and industrial processes into blockchain based systems.

Today, Trivolve Tech has a dedicated team of 42 professionals with deep expertise spanning: Blockchain infrastructure and enterprise deployments

• Government systems and policy requirements
• Artificial intelligence and data systems
• DeFi and Web3 infrastructure Enterprise software
• Fintech and financial infrastructure
• Healthcare technology
• Real world asset tokenization
• Systems integration and automation

This combination of technical depth and implementation experience allows us to work across the full lifecycle of a project, from architecture and development to integration, deployment, and production operations.

Quixy (Vivid Minds Pvt Ltd)

Trivolve Tech is complemented by Quixy as a subcontractor, a leading no code and low code application development and business process automation platform serving governments and enterprises worldwide.

Quixy's experience provides the enterprise application and workflow layer required to transform complex organizational processes into scalable digital systems. The platform has enabled the development of 27,000+ applications, serving 200,000+ users across 15+ industries.

This brings a critical capability to the project: the ability to translate complex institutional processes into practical, scalable applications that can be adopted by large organizations and government stakeholders.

7. The Treasury Withdrawal Request

• We are requesting 9,600,000 ADA over 15 months. That covers everything described in this proposal. Building all five stages of PFMS. Integrating with the systems the state already runs and launching on Cardano mainnet.

• At a planning rate of USD 0.23 per ADA, that is USD 2,208,000. The amounts in this proposal are fixed in ADA. The dollar figures are planning references only. Project expenditure is hard capped at USD 0.30 per ADA, which is USD 2,880,000 on the 9,600,000 ADA ask, and any value above that cap is returned to the Cardano Treasury.

7.1 Payment Schedule

This proposal is divided into five milestone payments with distinct work packages as follows:

Tranche / Milestone	Timing	ADA
Milestone 0 (Kickoff)	On administrator contract signing.	1,800,000
Milestone 1: Foundations	Month 3	2,000,000
Milestone 2: Proven on Cardano Preprod	Month 8	2,000,000
Milestone 3: Tested and on Mainnet	Month 12	2,000,000
Milestone 4: Sustained Usage	Month 15	1,800,000

Tranches for Milestones 1 to 4 are released only after the deliverables for the milestone have been verified by the independent assurer and the administrator and reported to the community.

A detailed breakdown of work packages, associated milestones and deliverables is available separately here and attached to this proposal.

7.2 Budget Allocation

The budget funds the design, development and deployment of PFMS. It covers end to end testing, mainnet load proving, the final handover package, penetration testing, an audit, the Cardano Foundation administration, and overall project delivery and management.

Line Item	ADA	USD (0.23 per ADA)	Share
Core blockchain and identity infrastructure	2,688,000	$618,240	28%
Stage module engineering	2,112,000	$485,760	22%
Integration test engineering, load proving and handover	1,536,000	$353,280	16%
Systems integration	1,152,000	$264,960	12%
Edge capture and resilience engineering	960,000	$220,800	10%
Security testing	472,000	$108,560	4.92%
Project management & audit	480,000	$110,400	5.00%
Administration	200,000	$46,000	2.08%
TOTAL	9,600,000	$2,208,000	100%

8. Risk Management

This section describes the main risks in the PFMS programme and how we mitigate them.

Build failure risk: Delivering six engines and modules across five stages within 15 months is a substantial build. Three things reduce this risk. First, the modular architecture: the six engines are built once and shared by every stage, so each stage is a module on a common core rather than a separate system. Second, experience: this is not our first large government deployment, as we have already taken state government systems into production on Cardano mainnet. Third, staged delivery: every work package is defined by its deliverables, evidence and dependencies in the published milestone document, record definitions are fixed at M1, Stages 1 to 3 are proven on preprod at M2, and nothing reaches mainnet before penetration testing at M3. Because funds are released only against verified milestones, the Treasury’s exposure is limited at every stage. Risk Level: Low to Moderate.

Data feed accessibility risk: PFMS depends on access to real time data from state police systems (CCTNS, NAFIS, PIS, DVR/NVR, ANPR, control rooms). Required data feeds have already been acquired from the state, substantially mitigating possible integration delays. Risk Level: Low.

Adoption: PFMS only creates value if the government uses it beyond the funded period. This is mitigated because the government is commissioning PFMS for its own daily operations, and the same model already works with FMS, which the state has run on its own infrastructure for over a year. The PFMS project agreements contain confidential state information and cannot be shared publicly. They have been viewed by the Cardano Foundation as administrator. Risk Level: Low.

ADA Price Risks: Upon withdrawal, the ADA price risk will be professionally hedged insofar as possible to ensure cost coverage over the course of the proposal. We have managed this before: when the ADA price dropped sharply during development of IndianChain under Project Catalyst, we continued delivery without reducing scope. To manage ADA appreciation, the total expenditure is capped at USD 0.30 per ADA with all remaining unspent ADA returned to the Treasury. Risk Level: Low

9. Governance and Withdrawal Management

We meet the requirements of the Cardano Constitution, as follows:

• Article II §6 Governance action standards and immutable document: This proposal is submitted in a standardised, legible format containing a title, abstract, rationale, budget, milestones and supporting material, with a URL and hash of all off chain content. The signed CIP-100/108 anchor metadata is pinned to IPFS, and its CID is the on chain anchor providing the immutable reference. The metadata embeds the blake2b-256 hash of this proposal document, so the chain from on chain anchor to IPFS metadata to document allows any served copy to be byte verified against the immutable record regardless of where it is hosted.

• Article II §7.1 Terms of the withdrawal: The purpose of the withdrawal, the 15 month delivery period and the costs and expenses of the proposed activities are set out in Sections 7. The withdrawal is fixed at 9,600,000 ADA, and project expenditure is hard capped at USD 0.30 per ADA, which is USD 2,880,000. Any value above that cap is returned to the Cardano Treasury. We commit to returning Treasury ADA in four circumstances:

  1. Unspent ADA at programme end. Any funds not spent are returned to the Cardano Treasury according to the final published reconciliation.
  2. Material milestone failure. Where a milestone is not delivered and not remediated, undisbursed tranches are not released.
  3. Fraud.
  4. Scope abandonment.

A final reconciliation is published as part of the oversight reporting cycle.

• Article II §7.2 24 month prior receipt disclosure: Trivolve Tech and Quixy (Vivid Minds Pvt Ltd) have not received ADA from the Cardano Treasury through a Treasury Withdrawal Action under Article II §7 in the prior 24 months. Separately, we disclose our Project Catalyst funding history: six community funded engagements across Fund 12 and Fund 14. These community funded engagements total ~1.49M ADA of Catalyst work to date, with 5 completed, and 1 in active delivery.

• Article II §7.3 Within the Net Change Limit: The 9,600,000 ADA requested sits within the ratified 500,000,000 ADA Net Change Limit covering Epoch 613 to Epoch 713, both on its own and in aggregate at the time of submission.

• Article II §7.4 Audit and oversight metrics allocation: An Admin and Audit allocation is included in the budget, covering the Cardano Foundation’s administration costs (which also covers necessary taxes and expenses) and the costs of competitively procured independent third-party assurer. The assurer will review the quality of the delivered work and also conduct independent audits. Procurement will begin as soon as the first tranche is released, with the procurement published, and audit reviews at M1, M2, M3 and M4 in line with the milestone gated disbursement schedule. The same allocation funds the oversight metrics on the use of the ADA.

• Article II §7.5 Named administrator: The Cardano Foundation is the named administrator of this proposal.

• Article II §7.6 Custody plan: Funds withdrawn under this Treasury Withdrawal Action are held by the administrator’s multi-sig wallet address. The address is not staked to a Stake Pool and is delegated to the auto abstain predefined DRep. Treasury funds cannot therefore be used to influence governance votes or stake distribution while held.

Treasury Withdrawal Guardrails

Guardrail	Requirement	Status
TREASURY-02a	Withdrawal shall not exceed the Net Change Limit for the relevant period	Compliant. Does not exceed the NCL at the moment of submission
TREASURY-03a	Withdrawal denominated in ada	Compliant. All amounts denominated in ₳. USD figures are reference only, at a planning rate of $0.23, with expenditure capped at $0.30 per ADA

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10. Administration

The Cardano Foundation will serve as the constitutional administrator of this proposal. The Cardano Foundation will conclude an off-chain legal contract with Trivolve Tech for delivery in line with the commitments of this proposal.

Delivery of milestones and acceptance thereof will be visible to the Cardano Community via a dashboard for this proposal, such as at treasurywithdrawals.cardanofoundation.org. Subsequent payments, once milestones are accepted, will also be publicly visible. The Cardano Foundation will utilise a multi-sig wallet address for the receipt of funds, which shall not be staked with a Stake Pool Operator and are delegated to the auto abstain predefined DRep.

All funds not disbursed by the end of the delivery period are returned to the Cardano Treasury. All amounts are denominated in ada (₳9,600,000 total ask). The total USD figure of $2,208,000 is a planning reference based on $0.23 per ADA.