Wgrep Rural PDF
Wgrep Rural PDF
Wgrep Rural PDF
WORKING GROUP ON
RURAL ROADS
IN THE 12th FIVE YEAR PLAN
Government of India
Planning Commission
Executive Summary
Rural Connectivity becomes a critical component in the socio-economic
development of rural people by providing access to amenities like education, health,
marketing etc. It has been established that investments in rural roads lifts rural
people above the poverty line. The evidence also indicates that as the rural
connectivity improves, the rural poverty levels come down.
There had been imbalanced development of the rural road network in
country. Some States provided cent per cent connectivity while some others did not
have enough financial resources at their disposal and consequently connectivity
remained at low levels. There were also problems of inadequate funds for
maintenance, upgradation and rehabilitation of existing rural roads. A network
approach and provision of sustainable accessibility with assured maintenance was
virtually absent.
Some of the major constraints and bottlenecks in providing rural
connectivity faced are insufficient funds with States for rural roads, inadequacy and
unpredictability of funds for rural roads, inadequate maintenance of rural roads by
many States due to inadequate funds, inadequate maintenance of MDRs resulting in
pressure on rural roads, quality and specifications not strictly adhered to, layers of
informal sub-contracting at the cost of quality, some roads constructed without
bridges etc.
With this as backdrop, Government of India had launched Pradhan Mantri
Gram Sadak Yojana in the year 2000 to provide connectivity to unconnected eligible
habitations and upgradation of select existing roads to the standards. The system
followed in implementation has several new aspects and is found to be acceptable for
rural roads development.
The primary objective of the Programme was to provide connectivity by
way of All-weather roads to unconnected habitations with population 1000 and
above by 2003 and those with population 500 and above by 2007 in rural areas. In
respect of Hill/ desert/ tribal areas, the objective is to link habitations with population
250 and above. Up-gradation of selected rural roads to provide full farm to market
connectivity is also an objective of the scheme, though not central. The Programme
has since been implemented by the Ministry of Rural Development, Government of
India. A brief description of the implementation strategy adopted by the Ministry of
Rural Development during 10th and 11th Plan period under PMGSY was
decentralized planning, standards and specifications, Detailed Project Reports
(DPRs) and scrutiny, institutional arrangements and HRD, procurement Process
maintenance of rural roads can be taken up in willing States through the modified
EPC mode. The possibility of next NABARD loan should also be explored.
Resources to increase the financial position of State, the States may be asked to
allocate some share out of Agriculture Mandi tax collected by State Govt, Mining
royalty collected by State Govt, Road Tax on Vehicle collected by State Govt etc. for
PMGSY/ rural road works.
In order to provide atleast minimum amount of funds for the sustenance
of the cadre of engineers created, the Planning Commission may allocate special
grants for such states to continue the programme of upgradation of Rural Roads
which were shown as connected though the ground reality is otherwise with only
eroded tracks left over.
During the last decade, the investments in road sector have increased
many folds. To absorb the increased investments for creating efficient road
infrastructure, it was required that the capacity of the implementing machinery as
well as contracting industry should also increase in pace with the quantum of
investment. The capacity of the road infrastructure agencies has enhanced in the last
decade, however, the pace of increase could not commensurate with the pace of
investment resulting in time and cost overruns of the road projects in the country. In
case of rural roads, the challenge was more prominent because of the fact that the
works are located in far flunged interior rural areas, where, the constraints are multi
fold. Capacity of implementing agencies as well as local contractors is relatively
much lower compared to those operating in better locations.
Some of the suggestions like appropriate staffing of SRRDAs including
attempts to introduce talent from private industry, methodical training needs
assessment at all levels, periodical orientation progress for PIUs and field lever staff,
efforts to enhance efficiency of local contractors, establishment of equipment banks,
conducting workshops for contractors and workman, development of consultancy
organisations dedicated to rural roads, orientation of independent monitors to rural
road building, quality control and rural roads health survey, strengthening of
NRRDA and State Organisation through appropriate staffing, need based training
and exposure to best practices in technology and management, institution of awards
for outstanding contribution at all levels etc. have been given in the report.
Rural roads comprise over 85 % of the road network and their being kept
in serviceable condition is crucial to the rural / agricultural growth and affording
means of access to millions of rural people to social facilities viz. medical, education
as also to market. Lack of maintenance affects the poor people badly as the time for
access to markets and other social infrastructure is increased. There is potential
danger, then, of these assets falling into disuse and eventual disintegration. Hence,
the challenge lies in both expansion of the network to provide road links to
unconnected habitations and at the same time maintenance of the existing vast rural
road network built at huge cost to the economy over the past over fifty years. The
Thirteenth Finance Commission (FC) has also been more specific and agreed to
provide maintenance funds for the core rural roads network including for PMGSY
roads that have come out of their initial five-year maintenance contracts. Among
several issues to be addressed for ensuring maintenance of rural roads on sustainable
basis, the most critical one are need for Government Policy, dedicated funds,
maintenance backlog, linkage to initial construction, Maintenance Management
System, institutional reforms, contract maintenance, Panchayati Raj Institutions,
modernization, experience sharing etc.
Proposed strategies for sustainable Rural Roads Maintenance has been
discussed under the report. Some of the issues and strategies are Rural Road
Management Act, rural roads as productive employment opportunity, funding for
rural roads maintenance, dedicated maintenance funds and their management,
institutional arrangements, involvement of the Panchayati Raj Institutions,
sustainable road maintenance through convergence with MGNREGA, planning of
maintenance works, Schedule of Rates for maintenance activities, construction /
maintenance technology, relevance of tractor-bound technology for the use of local
materials, use of mobile maintenance unit, adoption of labour-based technology, use
of cold mix - emulsion technology, low-end technology, PPP initiatives etc.
GIS Architecture is an essential tool to be placed on comprehending the
information of spatial and non-spatial data over a space and time. Rural Road
Network comprises of group of nodes and links. The Network Configuration is a
combination of these links with a directional orientation to the nodes which are the
centre heads of the habitations spread over the space. As most of the features are
static in nature there is a need to Geo-Reference permanently and the dynamic
interactions in terms of planning, construction, maintenance can be visualized over a
time on this spatial frame. To create the rural asset, GIS is a great supportive tool
which connects advance technologies and the conventional practices on a common
platform.
The Geo-Fenced map display system is essential for rural roads in order
to identify the progress of PMGSY and other roads in reference to access and
connectivity pattern for overall development of the rural areas, locate the habitations
of different ranges be it Geo-referenced, which will helpful for policy making on
connecting habitations over a time frame, avoid multi-connectivity among the
habitations rather the basic objective of PMGSY scheme can be analysed, identify
rural growth corridors and tracked the density of roads constructed per block /
constituency / district / State which may be helpful for fund allocation with
justification and overlay the land use, terrain conditions and other obligatory aspects,
a Geo-reference of map display system will be helpful for scientific and engineering
design.
Research and Development is a continuous process and has its own
importance at various stages of rural asset creation and maintenance. The
characterization of material, optimal designs and type of maintenance with a proper
privilege of monitoring the assets are some of the issues in the domain of research.
At every stage the R&D approach should be sensitively taken into account for
updating the conventional procedures. The R&D efforts should always be bridged
between field engineers and the researchers with technology, concepts and
approaches as connectors.
Environment is a transitional medium between infrastructure creation and
traffic interactions and it should be visualized in a continuous process on the rate of
change of environment with reference to infrastructure geometrics, road condition
and traffic mobility. The overall objective is to minimize the Carbon Footprints.
There is a need to plan environment pacifiers by creating plantations, noise barriers
and vibration absorbers along the road. Mobility levels, accessibility, road
geometrics and connectivity patters are some of the hidden characteristics which
influence the environment in rural sector. The ultimate objective is to promote a
good level of service to the road user and good environment to the non road user
living in the neighbourhood areas. The environment sustained planning is possible
with technology, software interface, spatial mapping and simulation of the traffic
interactions before constructing the road. With the GIS interface, overlay of transect
mapping on topographic sheets may further improve the road geometrics due to
optimal locations of side drains, CD works and gradient fixation.
In most of the States, the quality control aspect in construction of Rural
Roads is being monitored by two tier structure and the responsibility of both tiers of
quality mechanism fully vests with the State Government. The first-tier is generally
headed by an Executive Engineer who is actually executing the construction of Rural
Roads and is at the work implementation level. At the second-tier there is an
independent vigilance & quality control wing which randomly inspects the Rural
Road works and issues observation memos regarding the quality of work. A threetier quality mechanism is presently institutionalized under PMGSY. First Tier of
Quality control is at Programme Implementation Unit (PIU) level by way of process
control through mandatory tests of material and workmanship at the field laboratory.
Second tier is the quality check of each work at three different stages during
construction, by independent State Quality Monitors (SQMs) by way of structured
inspections in the prescribed format. The responsibility of first and second tier of
quality mechanism fully vests with respective State Governments. Third-tier is the
reduced to Rs. 50 lakh to attract more response to bids. General approval under
Section 2 of Forest (Conservation) Act, 1980 for diversion of forest land up to 5 ha
for selected public infrastructure projects in 60 IAP districts has been given and
orders have been issued.
The main recommendations of the group is that all habitations with
population between 100 and 249 in these districts may also be covered. Estimated
funds requirement is about Rs. 19,340 crore. A separate Scheme for Small and
Minor bridges, not necessarily connected with PMGSY roads, needed for the IAP
districts to connect all habitations over next three years. Rs. 500 crore would be
required initially to launch the programme during 2012-13. Construction of critical
Cement-Concrete (CC) Roads in highly affected blocks in the 60 districts may be
permitted. Manual tendering may be allowed in some highly-affected blocks for a
limited period of one year. Clustering of PMGSY roads for creating greater synergy
from security point of view may be considered. Assessment criteria of bid capacity
of contractors may be relaxed so that smaller contractors can also participate in
PMGSY works. The time period of execution of road works in these districts may be
enhanced from the existing 18 months to 24 months. Specific clauses may be added
in the Standard Bidding document to provide for insurance coverage to machinery
engaged in PMGSY works.
*******
Abbreviations
AMPs
BMS
BOT
BT
CC
CDAC
CD Works
CEO
CNCPL
CPGRAMS
CRF
CRRI
CUPL
DPIU
DRRPs
DRRSO
EPC
FC
GIS
GPS
GRM
GSB
HRD
HSD
IAP
IITs
ILO
IRC
ITIs
ITS
LWE
MDG
MDRs
MGNREGA
MoRD
MORTH
NABARD
NHAI
NIC
NPRE
NQMs
NRRDA
NRRDC
OMMAS
PIUs
PMGSY
POM
PPP
PRC
PRIs
PWD
R&D
RES
RFD
RRMs
SBD
SH
SQCs
SQM
SRRDAs
WBM
Contents
Chapter
Subject
Page No.
Chapter- 1
1.1
Introduction
1.2
1.3
3.2
3.2.1
3.2.2
3.2.3
3.2.4
22
23
23
23
25
11
11
12
15
16
16
17
18
18
20
21
21
Training
22
25
25
26
27
4.2
The Challenge
28
4.3
29
4.4
30
4.5
30
4.6
31
4.7
32
4.8
33
4.9
Institutional Arrangements
34
4.9.1
34
4.9.2
37
4.10
39
4.10.1
39
4.10.2
40
4.10.3
40
4.10.4
41
4.10.5
42
4.10.6
43
4.10.7
43
4.10.8
Low-end Technology
43
4.10.9
PPP Initiatives
44
4.11
Action Plan
44
Terms of Reference
49
5.2.1
49
5.2.3
5.2.4
53
5.2.5
Environment
55
5.2.6
56
5.3
Recommendation
56
5.2.2
49
50
59
59
59
6.6
Introduction
Terms of Reference
Review of Existing Quality Assurance System for Rural
Roads
Recommendation of the sub-group regarding improvement in
Quality Assurance system in construction of Rural Roads
Quality assurance system for Rural Roads constructed under
Non-PMGSY schemeQuality Assurance System in PMGSY Scheme
Quality assurance system for Rural Roads constructed under
Non-PMGSY scheme
Strengthening the second tire of quality mechanism
Modifications requirement in the sub-contracting clause of
SBD prescribed under PMGSY to ensure good quality of
construction and maintenance or Rural Roads
Management of over loaded trucks
6.7
64
6.3
6.3.1
6.3.2
6.3.3
6.4
6.5
60
61
61
62
63
63
63
65
7.3
7.4
66
7.5
67
66
68
8.2
68
8.3
69
8.4
70
8.5
Institutional Arrangement
71
72
9.2.1
Frame work
72
9.2.2
Framework is mandatory
73
9.2.3
Current focus
73
9.3
73
9.3.1
SEVOTTAM implementation
73
9.3.2
73
9.4
74
9.4.1
74
9.4.2
74
9.4.3
74
9.4.4
9.5
75
9.6
76
9.6.1
9.6.2
76
9.6.3
77
9.7
77
75
76
78
10.2
10.3
79
10.4
80
10.5
10.1
78
Final Recommendations
85
Annexure-I
92-95
Chapter 1
1.1 Introduction:
Rural development has become a matter of growing urgency for considerations of
social justice, national integration, and economic upliftment and inclusive growth.
For rural development, the provision of rural road network is a key component to
enable the rural people to have access to schools, health centers and markets. Rural
roads serve as an entry point for poverty alleviation since lack of access is accepted
universally as a fundamental factor in continuation of poverty. As India launched the
era of planned development in 1951, she had a reasonably good railway system, a
few ports and around 400,000 kms of serviceable road network. Accessibility to
villages was poor as only about 20 percent of them had all-weather road links. The
Government laid down a framework for accelerated growth through investments in
irrigation, power, heavy industry and transport. Side by side, stress was laid on
provision of social infrastructure (education and health) and integrated rural
development including agriculture. Rural roads act as a facilitator to promote and
sustain agricultural growth, improve basic health, provide access to schools and
economic opportunities and thus holds the key to accelerated poverty reduction,
achievements of Millennium Development Goals (MDG), socio-economic
transformation, national integration and breaking the isolation of village
communities and holistic and inclusive rural development. A major thrust to the
development of rural roads was accorded at the beginning of the Fifth Five Year Plan
in 1974 when it was made a part of the Minimum Needs Programme. In 1996, this
was merged with the Basic Minimum Services (BMS) programmes. The works of
village tracks were also taken up under several employment creation and poverty
alleviation programmes of the Central and State Governments.
There is growing empirical evidence that links transport investment to the improved
well being of the poor. A study (Fan, Hazel and Throat, 1999) carried out by the
International Food Policy Research Institute on linkages between government
expenditure and poverty in rural India has revealed that an investment of Rs. 10
crore (at 2009-10 prices) in roads lifts 16,500 persons above the poverty line.
Figure-1.1 attempted from data from the Ministry of Rural Development,
Government of India, depicts graphically the relationship between connectivity and
poverty. States having low connectivity had higher poverty levels. Provision of good
roads in rural areas also changes the characteristics of rural transport. With people
tend to travel more, the ownership of vehicles increases. There is a shift from nonmotorized vehicles to motorized ones and the cost and time of travel get reduced.
Percentage
100
90
80
70
60
50
40
30
20
10
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Percentage of Connected Habitations (June 2005 Data)
Rural Poverty (Percentage) (1999-2000 Data)
1950-51
1960-61
36%
22%
8 km
1970-71
40%
25%
5 km
1980-81
46%
28%
4 km
1990-91
73%
44%
3 km
2000-01
90%
54%
2 km
Year
Average
distance of a
village from a
road
10 km
NH 71,134
Km
RR
26,50,000
Km
SH 5,99,662
Km
National Highways
and Expressways
1.2
funds, the targets of the programme have not been achieved so far. A brief
description of the implementation strategy adopted by the Ministry of Rural
Development during 10th and 11th Plan period under PMGSY is given below:
(a) Decentralized Planning: The programme has implemented the model of
decentralized network planning for rural roads. The District Rural Roads Plans
(DRRPs) have been developed for all the districts of the country and Core Network
has been drawn out of the DRRP to provide for at least a single connectivity to every
target habitation. For prioritization of the yearly project proposals, the
Comprehensive New Connectivity Priority List (CNCPL) and Comprehensive
Upgradation Priority Lists (CUPL) are used. The CNCPL and CUPL have been
developed from the core network data. This planning exercise has been carried out
with full involvement of the three tier Panchayati Raj Institutions.
(b) Standards and Specifications: Before the PMGSY, rural roads in India were
being constructed on the basis of the specifications prescribed for the roads catering
to the requirements of heavy traffic such as SH and MDRs etc. Separate
specifications for the low volume/rural roads were not available, therefore, large
scale revision of Rural Roads Manual, IRC SP: 20 were carried out by IRC at the
special intervention of Ministry of Rural Development. This Manual has established
the standards for construction of Rural Roads under this programme. As envisaged in
the programme guidelines, later a dedicated Book of Specifications for Rural Roads
was developed by IRC. A Standard Data Book to enable the States to prepare
Schedules of Rates based on specifications has also been developed by IRC. The
specifications form the part of the contract agreement and the Schedule of Rates
developed by States on the basis of prescribed Standard Data Book is being used for
preparation of bill of quantities in a uniform manner. These publications enabled the
executing agencies to implement the programme with confidence based on technical
parameters.
(c) Detailed Project Reports (DPRs) and Scrutiny: As an important step to the
quality output, for every road under the programme proper survey and adequate
investigations are insisted. Detailed Project Report (DPR) is a pre-requisite for
project clearance. Independent scrutiny of the project proposals to ensure the
adequacy of designing and project preparation is carried out by over 50 prominent
institutions of Engineering and Technology in the country, identified as State
Technical Agencies.
nodal Ministry for implementation of the programme at Central level and National
Rural Roads Development Agency has been constituted to provide technical and
managerial support. At the State level, nodal departments have been identified for
management and State Rural Roads Development Agencies have been constituted to
implement the programme. District level Programme Implementation Units (PIUs)
have been set up for implementing the programme. Reputed Technical Institutions
have been identified as Principal Technical Agencies and State Technical Agencies
to provide support to the programme in matters of project scrutiny, training and
R&D. Central Roads Research Institute, Indian Roads Congress and other premier
institutions have also joined hands with NRRDA and the Ministry to provide support
on matters relating to standards, technology and other relevant aspects.
The programme has adequate provisions for providing large scale training not only
to managers and engineers involved in programme implementation but also to the
field level functionaries like skilled workmen, roller drivers and machine operators.
Dedicated and specialized institutions with clear responsibility at every level have
provided focused attention to the programme implementation.
The HRD
interventions have given opportunity to the personnel at the field as well as
management level to develop better understanding about various aspects associated
with the programme which has ultimately helped the programme implementation.
(e) Procurement Process: The States are responsible for execution of works under
the programme but it was found that the procurement process prevalent in some of
the States were not in tune with the requirements in particular reference to quality
and timely completion of work. When the programme is centred on quality, it is
very essential that a transparent procurement process should be in place which could
ensure timely completion of work with defined quality standards. Therefore,
Standard Bidding Document based on best national and international practices has
been developed for procurement of works under the PMGSY. All the works under
the programme are tendered on the basis of the Standard Bidding Document. In
addition to distinct advantages, this process has enabled the executing agencies in
taking up works from qualified Contractors with adequate capacity and has helped in
ensuring quality by deployment of appropriate machinery, technical manpower and
testing laboratories.
Quality Assurance: A three tier quality mechanism has been operationalised to
ensure quality of road works during construction. The first tier quality standards are
enforced through in-house mechanism by establishing field laboratories and carrying
out mandatory tests. NRRDA has developed Quality Control Handbook to help the
field staff in ensuring proper field and laboratory testing. It was felt that mere
carrying out prescribed tests is not enough but the recording of results and making
them available to the supervisory officers is also important. For this purpose, Quality
(f)
Control Registers have been prescribed to ensure systematic recording of test results
under this tier.
The independent monitoring of quality at the State level has been prescribed under
the second tier, where-in the States are required to monitor the quality of works by
deployment of quality monitors, independent of the executing machinery. The works
are required to be inspected at three stages of construction, i.e., formation, pavement
construction and finishing or completion stage.
The Third tier is an independent monitoring mechanism at the Central level. Under
this tier, the retired senior engineers termed as National Quality Monitors (NQMs)
are engaged for inspections of road works. The works for inspection are selected at
random. The basic objective of this tier is to identify systemic issues and bring it to
the notice of the executing agency to enable them to take appropriate steps so that
the issues are not only addressed for the work inspected but the systemic
improvements are also brought in the working of PIUs. The reports of NQMs are
closely monitored for action at all levels. The intervention of the senior retired
officers has contributed considerably in bringing about the consciousness on quality
through experience sharing by these officers. At-site guidance provided by these
officers has helped field staff in better understanding of specifications and good
construction practices.
(g) Maintenance:
A web based
online monitoring, management and accounting system has been developed under
the programme. The online system and website is being managed and maintained in
collaboration with NIC and CDAC. This online system is being used as decision
support tool for the various levels of functionaries and adequate information about
the programme is readily available to the citizens which are providing clear
transparency in programme implementation.
The targets of the Programme and present progress (June, 2011) are given below in
Table-1.2*:
Table-1.2
Item
Target
Cleared under Completed
the Programme
Number of Habitations
1,36,464
1,09,010
79,281
Length
of
New
3,67,673
2,56,425
1,95,692
Connectivity Roads (Km)
Up-gradation
2,24,000
1,64,212
1,32,516
Total 3,74,844 km.
Upgradation (60%) and
Renewal (40%) by the
States
*Source National Rural Roads Development Agency
The Programme will continue to be implemented during the 12th Plan period also.
1.3
With a view to formulate the 12th Plan and improve the delivery mechanism for
effective implementation of the Programme, the Working Group has been
constituted under the Chairmanship of the Secretary Rural Development with
following members :(1)
(2)
(3)
(4)
(5)
(6)
(7)
(8)
(9)
(10)
(11)
(12)
(13)
(14)
(15)
(16)
(17)
(18)
(19)
(20)
(21)
(22)
(23)
(24)
(25)
(26)
(27)
(28)
(29)
(30)
The Terms of Reference for the Working Group are given below:
1. To critically review the financial and the physical progress of the
development of the rural road network during the first four years of 11th Five
Year Plan, highlighting the constraints faced and the remedial actions required
to be taken in the context of the preparation of the 12th Five Year Plan.
2. Keeping in view the experience acquired from PMGSY and launch of Bharat
Nirman, recommend a policy framework for the development of rural roads in
the 12th Five Year Plan and a perspective for the next decade beyond 12th
Plan-Vision 2021-taking cognizance of various issues, including inter-alia the
following:
(i) Need for providing connectivity with a view to improving accessibility;
(ii) Need for enhancing the capacities of various implementing agencies in
order to achieve time targets;
Perspective planning for 12th Five Year plan, Mobilization of Resources and
to re-look into design of Scheme to propose sharing model
Capacity building for SRRDAs, Contractors, Engineers , Training Institutions
2.
etc.
3.
Maintenance Management of Rural roads
4.
Adopting GIS architecture in Rural roads including R&D and environment
5.
Quality Assurance in Rural roads(Other than GIS)
6.
Grievance Redressal, Sevottam, Citizen Charter and CPGRAM in Rural
Roads
7.
Development of LWE & IAP Area Rural Roads
The Reports of each Sub-Group, along with recommendations are given in
subsequent Chapters.
Chapter- 2
Perspective Planning
2.1
Introduction:
Sub-Group Meeting was held on 8th July, 2011 at Conference Hall, NRRDA.
2.2
2,90,480
13,852
2,76,628
11,62,000 km
Rs. 93,000 crore
In the Year 2003-04, detailed District Rural Road Plans were made in every district
of the country and Core Networks to ensure single connectivity to all habitations
eligible under the programme were identified. Based on this Core Network data
formulated on the basis of 2001 census, the following position emerged:
1,70,594
1000+ Category:
500-999 Category:
250-4999 Category:
Length of Roads required:
Length of roads requiring Upgradation:
Requirement of Funds:
59,844
81,054
29,696
3,69,331 km.
3,68,278 km.
Rs.1,33,126 crore
Subsequently, in the year 2004-05, some modifications were made as given below:
Length of Core Network to be covered under PMGSY
New Connectivity (km)
3,67,673
Up-Gradation (km)
3,74,844
(a) UG per se- to be done by GoI (km)
2,24,000
(b) Renewal to be done by State Govt. (km)
1,50,844
Current Status
PMGSY is being implemented since the Year 2000 and the present position of
cleared projects and balance is given below:
Habitations
Eligible
Sanctioned
Balance to sanction
Connected
Length New Connectivity (km.)
Eligible
Sanctioned
Balance
Upgradation (km.)
Eligible (60% of 3,74,844)
Sanctioned
Balance
1,36,464
1,09,010
27,454
79,281
3,67,673
2,56,425
1,11,248
2,24,000
1,64,212
59,788
2.3
(a)
As per the current price levels, the following is the requirement of funds for
completion of works sanctioned and in progress:
(b)
Assessment of funds required for works yet to be sanctioned under PMGSY is
given below in Table-2.1:
Table-2.1
(Rs. in
crore- at 2010-11 prices)
S.No. Activity(s)
Amount
(i)
(ii)
8,000
(iii)
NABARD Loan
NABARD Loan
(Interest part)
17,600
(iv)
(v)
(vi)
(vii)
(viii)
servicing
New habitations of
LWE\IAP Schedule V
Missing Bridges
250+
6,059
16,000
8,000
Justification
New connectivity- Rs.55,624
crore. Upgradation Rs.
23,915 crore.
6670 habitations @ 3 km/
habitation * 0.40 crore/km =
Rs. 8004 crore.
Repayment of Loan
Payment of Interest on
NABARD Loan.
40 districts * 200 habitations
@ 4 km/ habs. * 0.50 crore/
km = Rs. 16,000 crore
Lump
sum
provisions
(Maharashtra and Assam
States submitted proposal for
approx. Rs. 800 crore each
State.
So considering
provisionally 10 States in this
category)
Lump sum (cost of missing
bridges of LWE districts).
Proposed cost in Hilly areas is
landslides
(ix)
(x)
(xi)
(xi)
(xi)
(xi)
Funds needed
1,000
6,000
Estimates based on reports
from the 9 IAP States
19,340
Lump Sum
2,500
Rough approximation
10,000
Broad estimates for additional
population to be covered and
additional length of bridges to
be funded
4,000
1,85,438
(c)
Net funds required for completion of balance PMGSY projects including
two years of projection of PMGSY-II
- Funds required for completion of works already sanctioned - Rs. 34,218
crore
- Funds required for balance sanctions
Rs 1,85,438 crore
- Total funds needed
- Rs. 2,19,656
- Funds available in year 2011-12
Rs 20,000 crore
th
- Net fund required during 12 FYP (at 2010-11 prices)-Rs.1,99,656 crore
Say - Rs. 2,00,000 crore
(d)
Current source of funds: The following are the current sources of funds:
Year (s)
2000-01
2001-02
2002-03
2003-04
2004-05
2005-06
2006-07
2007-08
2008-09
10
2009-10
11
2010-11
Total
Allocatio
n
(CESS)
Allocati
on
(WB/
ADB)
Release
for
Progra
mme
Relea
se for
Admn
. Exp.
2,375
2,435
2,435
2,375
2,493
2,500
2,340
2,497
2,500
2,220
2,299
26
2,325
2,220
2,111
37
93
220
2,461
4,235
3,770
40
193
218
4,220
3,726
3,770
40
193
218
4,220
3,834
66
1,950
650
4,500
11,000
4,530
5,380
151
2,000
250
7,500
15,280
4,183
10,390
140
800
10
6,500
17,840
3,900
2,600
Release
under
ADB
assistance
Release
under
WB
assistance
Release
out
of
NABAR
D Loan
Total
Releas
e
4,434
21,325
185
800
90
22,400
36,538
2,600
60,303
693
6,028
1,656
18,500
87,181
2.5
2.6
- NRRDA has taken a total amount of Rs. 18,500 crore as loan from
NABARD for meeting the commitments of Bharat Nirman. While taking the loan
a Tripartite Agreement has been signed on 27-09-2007 between Ministry of Rural
(i)
Figure-2.1
Source: http://www.mypetrolprice.com/diesel-price-chart.aspx
After review of current scenario, it is proposed to move fixed Cess to percentage of
the cost of the HSD as ad velorem Tax which will enable to generate higher
resources for the implementation of the programme.
(ii)
(iii)
(iv)
(v)
(vi)
(vii)
It is noteworthy to bring the fact that some of the states have achieved total
connectivity of all eligible habitations under PMGSY framework and also completed
the targets fixed under upgradation. However, such states have created institutional
arrangements for carrying out the PMGSY programme which now are left with
inadequate work load, inspite of part of the personnel are re-deployed for other
programmes.
In order to provide atleast minimum amount of funds for the sustenance of the cadre
of engineers created, the Planning Commission may allocate special grants for such
states to continue the programme of upgradation of Rural Roads which were shown
as connected though the ground reality is otherwise with only eroded tracks left over.
This special allocation is in addition to what is contemplated for programme
completion in the article 2.5.1.
2.9 Specific problems for implementing PMGSY in North-Eastern States in view of
difficult terrain and difficult working conditions.
In the North-Eastern States construction of roads to improve the accessibility and
mobility is a challenging task because of multiple reasons. The issues related to
habitation configuration and existing road density are really challenging as the
habitations are sparsely located and major road connectivity is deficient in reference
to higher functional roads. In order to promote minimum access to all the habitations
there are certain challenging issues related to alignment fixation, terrain conditions
and drainage mapping etc. These roads are required to be constructed with specific
attention on safety, economy, and environment sustenance. It is observed and
expressed by the field engineers and people living in those areas on the need of
modifications on specifications and designs of supportive infrastructure, geometric
specification changes, changes in pavement structure, procurement specifications of
certain materials and technology. By considering various issues related to
implementation of PMGSY in North-Eastern States, a number of recommendations
have been suggested as follows:
-
On roads subjected to heavy snow fall and landslides, where regular snow or
debris clearance is done over long period to keep the road open to traffic,
roadway width is being increased by 1.5 m .
States are being permitted to provide 50 mm thick Bitumen Bound Macadam in
place of 75 mm thick WBM Gr III .
States are being permitted to provide adequate length of cement concrete drains
along slopes to reduce the damage to roads.
States are being allowed to provide requisite number of CD works keeping in
view the terrain, snow fall and deposition of snow in high altitudes areas.
As regards demand for upgradation of roads, it should be linked to road asset length
constructed per 1000 population. Sharing of funding may be on 50:50 basis.
A new Scheme is proposed to construct critical bridges/culverts below PMGSY
eligibility norms on cost sharing basis between Centre and States 50:50 basis as
construction of bridges will at least provide some connectivity to distributed
populations.
An additional fund of Rs. 1,000 crore should be earmarked to launch the programme
in last year of the 12th Five Year Plan. This whole planning of PMGSY-II in
advance is highly critical to continue the momentum of PMGSY in States who have
created strong infrastructure for constructing rural roads.
2.11 Relaxation of PMGSY norms for Special Category States
There has been demand from the States like J&K, Assam and other NE States to
relax the norms for PMGSY roads similar to relaxations given to IAP districts.
Accordingly, the Ministry would submit the matter to the Cabinet for relaxing the
norms for 11 (eleven) Special Category States (Arunachal Pradesh, Assam,
Himachal Pradesh, Jammu and Kashmir, Manipur, Meghalaya, Mizoram, Nagaland,
Sikkim, Tripura and Uttarakhand) similar to IAP districts. The broad requirement of
funds as been estimated as Rs. 4,000 crore and included in the funds requirements
for 12th Five Year Plan, though better estimates would be made in consultation with
the concerned States.
Chapter 3
Capacity building for
Training Institutions etc
3.1
SRRDAs,
Contractors,
Engineers,
Introduction:
1.
2.
3.
4.
-Convenor
- Member
-Member
-Member
During the last decade, the investments in road sector have increased many folds. To
absorb the increased investments for creating efficient road infrastructure, it was
required that the capacity of the implementing machinery as well as contracting
industry should also increase in pace with the quantum of investment. The capacity
of the road infrastructure agencies has enhanced in the last decade, however, the
pace of increase could not commensurate with the pace of investment resulting in
time and cost overruns of the road projects in the country. In case of rural roads, the
challenge was more prominent because of the fact that the works are located in far
flunged interior rural areas, where, the constraints are multi fold. Capacity of
implementing agencies as well as local contractors is relatively much lower
compared to those operating in better locations. Capacity building for Rural Road
Infrastructure development can be broadly discussed in two categories of Quantity
and Quality. Though, it is challenging to achieve the quantity with quality, the need
of the hour is to provide road infrastructure of good quality in time bound manner.
3.2
The institutions that are responsible for development of rural road infrastructure have
been identified as given below:
Consultancy Organisations
Training Institutes and
NRRDA
(b)
(c)
(d)
The rural road programme implementation units have large quantum of works and
are facing the constraint of availability of limited contractors with required
qualifications and capacity
In view of the above problems the following steps may be taken to develop the
contracting industry.
(a)
(e)
3.2.4
Consultancy
Organisations
and
their teams need to ensure that the scheme is implemented in right earnest. To
accomplish the objectives of quality rural connectivity, it will be necessary to
encourage State and field formations. It is therefore recommended to institute
Awards at various levels for outstanding contributions.
3.3
Recommendations
The recommendations of Sub-Group is as under:
a) Appropriate staffing of SRRDAs including attempts to introduce talent for
private industry.
b) Methodical training needs assessment at all levels.
c) Periodical orientation progress for PIUs and field lever staff.
d) Efforts to enhance efficiency of local contractors through:
e) Establishment of equipment banks.
f) Conducting workshops for contractors and workman.
g) Development of consultancy organisations dedicated to rural roads.
- Employment of independent monitors.
h) Orientation of independent monitors to rural road building, quality control
and rural roads health survey.
i) Strengthening of NRRDA and State Organisation through appropriate
staffing, need based training and exposure to best practices in technology and
management.
j) Institution of awards for outstanding contribution at all levels.
Chapter 4
Introduction:
- Convenor
- Member
- Member
- Member
- Member
- Member
Rural Roads Maintenance Challenges and Need :Rural roads comprise over 85
percent of the road network and their being kept in serviceable condition is crucial to
the rural / agricultural growth and affording means of access to millions of rural
people to social facilities viz. medical, education as also to market. Lack of
maintenance affects the poor people badly as the time for access to markets and other
social infrastructure is increased. There is potential danger, then, of these assets
falling into disuse and eventual disintegration. Establishing new connectivity is also
going to become more difficult as many of the easier habitations have already been
connected. Increasingly the new roads will be serving communities in more remote
and difficult terrain requiring special considerations with respect to planning and
program implementation. There will also have to be a greater emphasis on the States
that have lagged in implementation performance. The connectivity that has already
been created will also require much more attention in terms of its long term
maintenance. In addition to routine maintenance there is a need to upkeep roads built
through periodic maintenance. The responsibility for maintenance rests with State
governments. However, in many States there is still a lack of clarity over the long
term arrangements for the management of the network, sustainable and reliable
finance for maintenance, and the organization setup for effective execution of
maintenance activities. For ensuring access on sustainable basis, there is no escape
for the States from attending to the maintenance needs of the rural road network. The
current replacement value of the rural road network in the country is broadly
assessed as under (Figure-4.1):
(i)
(ii)
PMGSY (2011)
320,000 km
Rs 0.4 crore
Non-PMGSY (2011)
Total length
2,550,000 km
Rs 0.12 crore
Rs 434,000 crore
Figure-4.1
Assuming an erosion of asset due to neglect in maintenance at 5 percent of the total
value, annual loss would be easily Rs. 21,700 crore. This is equivalent to 54,250 km
of new construction at current rate of Rs. 0.4 crore per km. This also implies that
what PMGSY is achieving currently is being lost by way of neglect in maintenance
for the country as a whole.
4.2
The Challenge
The challenge lies in both expansion of the network to provide road links to
unconnected habitations and at the same time maintenance of the existing vast rural
road network built at huge cost to the economy over the past over fifty years. A
balance between road building and road maintenance has to be achieved. Timely
upkeep and maintenance would help in availability of roads for passage of traffic
continuously particularly in monsoon, reduce time of travel besides reducing rate of
deterioration and adding to safety of road users. Availability of funds is one of the
major constraints in preserving the assets. The Central Government is already
The Twelfth Finance Commission sent the first signal that government wanted to
place far greater emphasis on maintenance. The 12th Finance Commission considered
the issue of maintenance of State roads and bridges by the State governments. To
quote from the Committee Report: It is far more important to ensure that assets
already created are maintained and yield services as originally envisaged than to go
on undertaking commitments for creating more assets. We notice that maintenance
of roads and bridges has not been given adequate importance by the States. We are,
therefore, recommending additional grants separately for maintenance of roads and
bridges, and maintenance of buildings.
The Thirteenth Finance Commission (FC) has also been more specific and agreed to
provide maintenance funds for the core rural roads network including for PMGSY
roads that have come out of their initial five-year maintenance contracts. The FC will
provide grants-in-aid for roads maintenance to the extent of 50 percent of the
requirement assessed for non-PMGSY roads on the core rural roads network and 90
percent of the requirement assessed for PMGSY roads for four years starting 201112. The total amount of the grants awarded is Rs 19,930 crore for period of four
years 2011-12 to 2014-15 (Page No. 475 Annex 12.16 of 13th Finance Commission
Report, December, 2009). While making the award the commission has set
preconditions for release of the awarded grants indicating that the revised estimate
should not be less than the projected Non Plan Revenue Expenditure (NPRE) for the
year under consideration and the revised estimate net of grant should not be less than
the projected NPRE for the previous year for all the 4 years of the award. Further, it
is indicated that the actuals net grants should not be less than the projected NPRE for
the year previous to that. The commission is of the opinion that the award is a
supplementary effort to the funds mobilized by the respective states from their
budgets set apart for maintenance of roads and bridges with a view that the total
amount so accrued with adequately served the requirements of maintenance of the
total system of roads and bridges to avoid loss of assets created.
4.4
4.5
Planning for development of the road network has to account for and include its
maintenance so as to ensure availability of access to our rural people on a sustained
basis. Thus maintenance strategy would need to be adopted by the States as integral
part of development. Figure-4.2 gives a broad framework of the major elements of
the maintenance strategy. In view of the current scenario and evidence-based
practices in the country and elsewhere, the following strategies are recommended for
adoption by the States for sustainable maintenance of rural roads.
Figure-4.2
Policy, Institutional, Funding and Implementation Elements
Source: ILO Study on Rural Roads Maintenance in Madhya Pradesh, India
Policy Framework
Funding
Institutional Arrangements
Organisation and responsibilities
Asset management
Capacity Building
MAINTENANCE IMPLEMENTATION
Management
Maintenance units
Inventory and surveys
Preparation of Annual
Plans
4.6
Delivery Arrangements
Contract procedures
Contract
documentation
Contracting
arrangements
Technology
Resource utilisation
Research
and
development
Appropriate
Equipment
Control
Monitoring
Review and evaluation
Technical audit
Financial audit
There is growing recognition that even rural roads have to be properly designed and
need to follow proper standards laid down by the Indian Roads Congress. Such roads
would require less maintenance efforts. An Action Plan should, therefore, be drawn
to remove the maintenance backlog and bringing roads to maintainable position in a
time bound manner. To give adequate powers to the departments in charge of rural
roads, it is recommended that a Rural Road Management Act, as adopted in National
Highways be introduced, which clearly:
The NRRDA (MoRD) may take the lead in preparing a draft Model Act.
4.7
Policy Framework
Opportunity
Rural
Roads
as Productive Employment
Proportion of
Materials
Labour
Equipment
Total
60
35-40
100
25-30
10-15
100
5-10
30-40
100
Purely labour-oriented*
the Ministry of Labour and Employment incorporate various objectives of the ILO
viz promotion of rights at work, employment, social protection and social dialogue.
The Standard Bidding Document on PMGSY works finalized by the NRRDA
stipulate strict adherence to such requirements by the contractors during execution of
rural road projects on the ground. There is need to monitor proper implementation of
such guidelines from the point of view of assuring decent work opportunities and
labour welfare.
Creating better awareness among the contractors through periodic seminars by the
rural road agencies with the support of the State level labour departments,
polytechnics, Industrial Training Centres, Construction Industry Development
Council, etc. would also help in this process.
There are many spin-offs that can be expected from the rural road programmes that
can lead to the creation of additional jobs. These will be:
However, it is to be noted that continued spin-off benefits will accrue only if the
Rural Road assets are well maintained and are not allowed to deteriorate. In fact,
investment in maintenance is most cost- effective for job creation.
4.8
Realistic Norms: A more detailed study of funds required for maintenance of rural
roads on realistic basis is needed with clear break up for routine and periodic
maintenance for earth, gravel, water-bound macadam, black-top roads in different
traffic, terrain and climatic conditions prevailing in the country. The norms should
consider the frequency of various maintenance tasks required. The States should
spell out minimum essential requirements. Table-4.2 below shows an estimation of
annual funding needs for the maintenance of rural roads.
Table-4.2
Length
km
Unit Rate
Routine Maintenance
3,20,000
Rs.20,000 /km/year
3,20,000
Rs.5,00,000/km/ 5 Year
S.No
ITEM
PMGSY Roads
Amount,
Rupees
640 crore
3,200 crore
3,840 crore
1,100,000
Rs. 12,000/km/year
1,320 crore
1,100,000
4,440 crore
5,760 crore
9,600 crore
400 crore
10,000 crore
Dedicated Maintenance Funds and their Management: The States should set up
dedicated funds for maintenance by transferring funds from various sources
government budget, grants recommended by the Finance Commission, any
additional levies like cess on agricultural produce, additional sales tax on petrol and
high speed diesel. A proper management system of the fund should be set up by the
States for planning, implementation and monitoring of the maintenance works.
4.9
Institutional Arrangements
been constitutionally conferred statutory status, the PRIs have to evolve themselves
in a healthy manner over the coming years.
The objective of transferring full responsibilities for management of the rural roads
network to PRIs in most States is a long-term objective. Significant capacity building
and resource transfer will have to happen for this to take place. Many routine
maintenance functions can be carried out at the PRI/community level but will need
technical expertise, equipment and finance from outside. In the meantime greater
attention needs to be placed with the existing Public Works Departments (PWD) and
Rural Engineering Service (RES) to improve maintenance functions. It will also be
important for partnerships to be developed between PWD/RES and the PRI/local
communities to gradually build capacity.
The States may apply their resources to the core road network and in the first phase,
the non-core roads may be devolved to the Panchayati Raj Institutions for
maintenance through community participation. An incentive-based system for noncore roads may be evolved where the State government could give partial subsidy.
The road agencies should assist these local bodies by providing the needed technical
support and developing their skills in undertaking maintenance operations. The road
agencies themselves would need capacity building through training.
Over the time, maintenance of even core rural road network can be undertaken by
the PRIs. The Panchayats can be provided with equipment such as light compactors
of walk-behind-type, drum mixer, bitumen spraying equipment and basic tools. The
District administration could also make available the material resources required for
maintenance such as small quantity of stone metal, chips, bitumen, etc. Identified
villagers in the area served by the road could be imparted training in the various
maintenance tasks of minor nature such as repairs to pot holes and short damaged
stretches of road, maintenance of berms, cleaning of drains and culverts. It is felt
that involving the people living in habitations where connectivity has been provided
would stimulate a sense of ownership and pride in maintaining the roads in good
condition. Payment of wages to the workers involved in maintenance activities could
also be considered based on the actual days on which they were engaged on specific
activities, integrating the expenditure on these activities with other schemes such as
the Rural Employment Guarantee Scheme, Sampoorna Grameen Rozgar Yojana, etc.
The role and functions of PRIs can be allotted as per Table-4.3 under:
1.
District
Panchayat
(at the district level)
Issues to be addressed
1. Selection of Alignment
2. Grievance Redressal
3. Local Road Safety
4. Maintenance of Roads within
villages and non-core roads
Periodically, a technician from the engineering department visits a rural area for
rendering the needed technical advice on maintenance problems to the cooperatives
and also to monitor the quality of maintenance works. There are about 18,000 Road
Cooperatives receiving subsidies from the government towards rural road
construction and maintenance. In Austria, the local communities form associations,
which are responsible for the construction and maintenance of rural roads, the
financial assistance being provided by the federal and provincial governments.
The practice of villagers living along the access roads forming road cooperatives
for construction and maintenance of rural roads, subsidised by the local government
may be given a fair trial in the Indian context also.
Way Forward
The government should fund capacity building of District Panchayats so that they
take over functions like maintenance management and road safety for the rural roads.
4.9.2 Sustainable Road Maintenance through Convergence with MGNREGA
Convergence of inter-sectoral programmes such as PMGSY with MGNREGA will
enable better planning and effective investments in rural areas. Convergence also
brings synergy between different government programmes and /or schemes in term
of their planning, process and implementation.
Mahatma Gandhi National Rural Employment Guarantee Act (MGNREGA) has also
provision to take up rural connectivity to provide all weather access. More than 16%
of MGNREGA works currently relate to rural connectivity. In February 2009, the
MoRD has issued guidelines for the convergence between MGNREGA and
PMGSY. Convergence between MGNREGA and PMGSY is mutually beneficial.
The PMGSY guidelines acknowledge the critical importance of the institutional
framework for effective maintenance and call for the ultimate devolution of PMGSY
roads management and ownership to local governments and the Panchayati Raj
Institutions (PRIs). Therefore, road maintenance projects will be prepared
accordingly. Works required and covered under MGNREGA will be selected under
MGNREGA. Works not allowed under MGNREGA but permissible under PMGSY
will be selected under PMGSY.
Maintenance is one of the main challenges yet to be overcome under PMGSY
implementation nearly ten years since its inception. Under the program, the
contractors are required to maintain the roads built for five years after completion of
investment. The States are expected to provide funding both for the initial five year
maintenance contract and the subsequent road maintenance activities. Efforts have
been made to ensure regular maintenance, but the results are far from adequate. A
PMGSY audit of maintenance activities estimated that only 30 percent of
maintenance requirements are met for the network as a whole and even under the
five-year maintenance contracts surveys reveal that many roads are not receiving
proper maintenance.
Joint monitoring and supervision of activities should be planned. Baseline
assessment, concurrent appraisal and documentation and evaluation of impact of
PMGSY and MGNREGA on a set of indicators for eco-restoration as well as for
local community needs could be initiated. Quantification of benefits of works
undertaken could also be taken up.
This is a substantial increase in funding for most States and the challenge now is
how these funds can be effectively utilized. The PMGSY program was set up as a
capital works program and the institutional arrangements have served it well.
However, in many States the long-term institutional arrangements for maintenance
and management of the network are still to be fully defined. The PMGSY guidelines
acknowledge the critical importance of the institutional framework for effective
maintenance and call for the ultimate devolution of PMGSY roads management and
ownership to local governments and the Panchayati Raj Institutions (PRIs).
However, the guidelines also recognize that PRIs lack the managerial, financial and
technical capacity commensurate to this new responsibility and ascribe interim
maintenance responsibilities to the Project Implementation Units (PIU) under the
SRRDA. Although the PIUs are better equipped with technical resources they still
lack the specific skills and procedures to effectively manage the maintenance of the
network.
While some States have reasonable institutional arrangements for maintenance in
place an overarching strategy is required to cover institutional arrangements, finance
and management of the entire State road networks, including all rural roads and not
just PMGSY roads. In many States, the current multiplicity of agencies and schemes
involved in construction and maintenance leads to a lack of clarity on who owns the
network and therefore who is responsible for its maintenance. The lack of road
inventory and condition data also creates problems in that no one is really sure of the
size of the maintainable network, its extent of deterioration and demand for
maintenance. National programs, such as PMGSY, are governed by program
objectives and procedures that often run parallel to State level implementation
procedures, with the result that subsequent network management arrangements are
not addressed.
Given the significant employment opportunities available to rural people for the
maintenance of rural infrastructure projects, consideration is being given to
international models for mobilizing and organizing community labour. One possible
model is the formation of community level petty contractors which have been found
to be effective when combined with support from PWD/RES. The government has a
number of other rural development programs that are aimed at reducing rural poverty
by creating off-farm employment opportunities either through self-employment or
through guaranteed labour schemes. There is interest within the rural roads sector in
developing links with these programs and particularly with the National Rural
Employment Guarantee Act (MGNREGA).
At the moment, MGNREGA mostly provides employment for the creation of new
assets but discussions are on-going on whether the scope of the scheme could be
broadened to include maintenance activities. If this were the case, there would be the
double advantage of employment generation while at the same time maintaining
productive assets.
4.10
since maintenance is the responsibility of the State Governments for the Rural
Roads.
4.10.2 Schedule of Rates for Maintenance Activities
The current Schedule of Rates for road construction have been evolved using normal
productivity of labour and machines and are basically meant for the new road
construction / rehabilitation. Many States use the same Schedule of Rates for the
road maintenance activities and the contractors do not find them realistic as the
productivity of labour and equipment is rather very low for the maintenance works
such as patching of potholes on bituminous roads. As a result, there are not many
bidders and there is low interest and enthusiasm amongst the road maintenance
contractors.
In order to overcome this situation and in the interest of preservation of the road
assets, it is proposed that separate and more realistic Schedule of Rates for road
maintenance should be evolved in each State so that there is enthusiasm, competition
and interest amongst the contractors. This would greatly enhance the road
maintenance service delivery at the field level.
4.10.3 Construction / Maintenance Technology
The prevailing technology for construction and maintenance of rural roads needs a
review. The current practices for the construction and maintenance of rural roads
continue to be traditional in as much as the use of hard stone metal is being insisted
upon, in the form of WBM layers and a bituminous surface treatment is being
preferred even on low volume link roads. Although there is an increasing awareness
regarding the need for maximized use of locally available materials, adoption of soil
stabilization techniques and relevance of unsealed gravel roads for the low volume
traffic conditions, such cost-effective practices have not yet found favour in many
States.
The deployment of equipment/plant, both for construction and maintenance/
rehabilitation is, by and large, the same as is being adopted for higher category
roads like Major District Roads and State Highways. For example, bituminous hot
mix plants for the production of premixed materials and asphalt pavers for laying
thin carpets are commonly used. For excavating earth from borrow areas, the use of
excavators in combination with dumpers is also quite common.
The formulation of Specifications for Rural Road works and a Standard Data Book
by the MORD/ NRRDA has been a welcome step. This has facilitated the adoption
of uniform practices throughout the country. These documents should be periodically
reviewed and updated based on the feedback from the field Engineers, Contractors
Thus, most works of rural road construction and maintenance can be accomplished
with tractor-based implements. The use of tractor-based implements does not
necessarily mean higher cost or dispensing with labour. In rural road construction,
lower cost and higher employment can be achieved. Studies by CRRI in India have
shown that:
Savings of the order of 15-25 per cent can be effected in items of earthwork,
mechanically stabilized and lime stabilized construction layers.
The labour component of items of work such as earthwork and mechanically
stabilized courses using semi-mechanized methods is in the range of 30-40 per
cent of the total cost; on the other hand, if fully mechanized construction
techniques are employed for these items of work, the labour component is as low
as 5-10 per cent.
The mechanical stabilisation technique is commonly adopted all over the world for
the unsealed gravel road construction and maintenance. It may be pointed out here
that a good percentage of the rural road network connecting habitations with
population less than 500 belongs to the category of low volume rural roads for which
gravel base with gravel surfacing can be suitable and economical. Adopting simple
equipment like tractor-towed rotavators can significantly bring down the cost of
Grave/Soil-Aggregate roads. Also, such tractor-towed equipment can be deployed
for the Granular Sub-base (GSB) in lieu of WBM Grade I, bringing economy in
construction.
Apart from tractor bound technology of construction, there are several low-end and
low cost technology machines that perform equally well as the heavy road
construction equipment and as such their use can be encouraged in the construction
of the rural roads.
4.10.5 Use of Mobile Maintenance unit
Rural Road maintenance is currently being carried out by the gang labour system.
The gang labour can be reorganized and its efficiency improved by the use of low
cost, small capacity, mobile unit towed by tractor or other prime mover. Mobile
Maintenance Unit may include the following items of equipment as per Table-4.4
under:
Table-4.4
Item of Equipment
Prime Mover
Trailer
Blader Attachment
Pavement Breaker
One mobile unit may cost around Rs 30 Lakh . It can look after the maintenance of
200 km of roads. An area wide approach can be adopted depending upon the density
of rural roads.
Action Plan
Strategy Proposed
Time Horizon
A. Government Commitment
Development policy 1. Formulate and adopt rural road development and Short term
(including
maintenance policy addressing key issues with learning
maintenance)
from PMGSY
2. Draft a Rural Road Management Act and have it passed Medium term
by the State legislature
3. Establish high level committee for ensuring availability Short term
of adequate funds for balanced expansion of network and
maintenance of existing roads
4. Promote convergence with MGNREGA especially for Short term
maintenance of rural roads
B. Financing Aspects
Inadequate funds
Management
funds
C. Institutional Reforms
Monitoring
Arrangements
Set up a small but independent asset management unit in the Short term
State Headquarters (consolidating and updating inventory
on regular basis, maintenance requirements from field staff,
resource estimation, budget demand, identification of
priorities, broad scheduling and monitoring)
Explore PPP Models Undertake pilot projects for provision and maintenance of Medium Term
rural roads in 2-3 different districts in the country on PPP
basis covering a concession period of 15-20 years.
Capacity Building
D. Planning Aspects
Master Plans
Review and refine the District Rural Roads Plans to provide Medium term
accessibility to all habitations (both PMGSY and NonPMGSY)
Maintenance
Planning
Establish simple procedures for data collection keeping the Short term
data requirements to the minimum essential for the
Maintenance Management System (MMS). System of Road
Registers in each Block and District.
Prioritisation
E. Operational Capacity
Staff Deployment
Evolve work norms and duties for different levels of staff Medium term
and ensure deployment of adequate staff for maintenance.
Development
of Develop a cadre of small scale contractors including Short term
Small
Scale community contractors for dedicated and sustainable
Maintenance
maintenance of rural roads
Contractors
Develop Capacity of Institutional strengthening / development of cadre of Short term
PRIs to undertake technicians in the PRIs to effectively plan, design and
road maintenance
execute the road maintenance on sustainable basis.
Develop
separate Schedule of Rates based on realistic output of labour and Short term
Schedule of Rates equipment should be developed to attract and encourage
for
Road small scale contractors.
Maintenance
Launch
Schemes
Pilot Pilot test some of the innovative and evidence-based MMS Short term
on road and evidence based international practices.
maintenance using
innovative strategies
and
appropriate
Maintenance
Management
Systems (MMS).
Quality Procedures
1.
Focus on adequate quality at initial construction Short term
stage to reduce the future maintenance requirements for
non-PMGSY roads.
2.
Upscale quality procedures covering quality control, Medium term
quality assurance, quality audit, etc. for non-PMGSY roads
as being achieved on PMGSY roads.
Supervision
Research
Development
and Identify areas for further R&D for modernization of Regular basis
execution of works, enhancing use of local and marginal
materials, pavement evaluation, cost-effective maintenance
treatments, low cost surface sealing, dust control treatments
and undertake R&D work.
It may be noted here that while the States are vested with the responsibility of rural
roads maintenance, the 13th Finance Commission awarded Rs. 19,930 crore as grant
in aid for the maintenance of the roads and bridges during 2011-2015 for
supplementing the resources of the States. However, the Finance Commission, while
awarding the grant in aid for maintenance of roads and bridges imposed certain
conditions for utilization of the grants. Fulfilment of the conditions requires States
initiative in providing adequate grants of their share, in order to effectively get the
grant in aid and utilize the same, as recommended. This could be possible only when
the States follow the strategies suggested in the action plan matrix above.
Chapter 5
Adopting GIS Architecture in Rural Roads including R&D and
Environment
5.1
Introduction:
- Convenor
- Member
- Member
- Member
- Member
- Member
- Member
e) To overlay the land use, terrain conditions and other obligatory aspects, a
Geo- reference of map display system will be helpful for scientific and
engineering design.
By considering the above entities as mandatory for PMGSY and other schemes, the
following procedural steps are suggested for generalization of the approach.
Step 1: Procurement of consistent topographic sheets like 1:50,000 and scan them
with the defined resolution suggested. Digitize them with a defined zoom level such
that all the features can be digitized in number of layers.
Step2: Conducting the GPS survey for all the ground control points of every district
on the known roads / important places to a minimum number of 25-50 per district.
Step 3: Geo-fenced that topographic and mosaic them with the administrative
boundaries of the district and the State by taking the output of Step 2. This leads to a
resolution correction to a length of plus or minus 5 m.
Step 4: By using the GPS instrument all the habitations are to be Geo- coded with the
minimum number of satellite linkages of 9-10 number.
Step 5: By using the navigational mode of GPS or by static GPS record all the
curves and road length of each road with a specific record of culverts, village starting
and end points, starting and end points of type of road and all other obligatory
features of the road. This survey will give alignment, villages covered, the type of
surface covered and length of the road to precision.
Step 6: Use software inter-phase which should be the common interface matching to
the national level mapping and to display all the spatial and attribute data about - the
road, habitation, support infrastructure and land use, administrative/ constitutional
boundaries of the State.
Step 7: The outcome of this study will give a straight answers with graphical
accuracy to the most frequently asked questions by everyone in the Nation.
The scope of the work involves the display of the roads with updating of the link
characteristics and visualizing the display of road network of Core Road Network.
This output will be useful for the following reasons like:
a) Core Network verification.
b) Planning of New Connectivity and Prioritization of Upgradation
c)
d)
e)
f)
approach should be sensitively taken into account for updating the conventional
procedures. The R&D efforts should always be bridged between field engineers and
the researchers with technology, concepts and approaches as connectors.
There is a need to interface the practices at various stages in the rural sector with
different hubs like technology hub, interface hub, operational hub, monitoring hub
and maintenance hub. These hubs are coordinated with the spatial display systems of
every State and the R&D efforts will be generalized on the basis of the study and
approaches.
Problems like tracking of heavy loaded vehicles, tracking of traffic scenario, new
materials and their intervention for economic construction of road, technology
enabled mapping for optimal alignment and fixing the geometrics of the road,
technology for faster construction, interface treatment for better strengths are some
of the areas which are to be addressed for research. Across the National and at
International level lot of research is going on and there is a need to interact with the
researchers and develop the information system with a proper interpretation to the
Indian conditions. There is a need to develop an Interface Hub with the functionality
of collection of research findings, interactions, interpreting the approaches with
experts and promoting the test projects on Indian roads.
Further, R&D is also essential to assess the bridge condition and functionalities of
support infrastructures with reference to quality, location and its characteristics
compositions. In rural roads sector there is a great need on research with reference to
premature failures, non functional use, non -reciprocate roads for the future
projections. In this way there is a need for interfacing the mathematical models,
simulating softwares for effective planning and implementation on the roads. As a
part of the research, every road should be monitored regularly to identify the
deficiencies and track the failures for effective planning, designing and maintaining
the Rural Roads. In this connection, the following audits are required to conduct on
different surfaces, categories and functionalities of the road for effective decisions on
sustaining the life of the pavement and its functionality.
a)
b)
c)
d)
e)
f)
g)
h)
i)
j)
Economic audit
Operational audit
Road safety is of the great concern on Rural Roads where accidents are occurring
due to multifaceted reasons. Accidents are occurring in rural roads because of
improper treatment of junctions when connecting Rural Roads to Higher Order
Roads; deficiency of road information systems; improper driving skills; land use
impacts on the roads; geometric deficiencies; structural conditions of the road; and
composition of slow moving vehicles. There is a need for the research enabled
solutions through simulating the spatial features of the road at the junctions, curves
and at mid blocks with different templates like braking distance, sight distance, sight
triangle, turning path, glare recovery, perceptional reactions and peripheral
visibilities etc. Solution can be generated from the perspective of Planning,
Engineering, Maintenance, Monitoring, Tracking, Training and Counselling on these
problematic roads.
Technology Hub and Monitoring Hubs are essential to track the failures on the road,
risk generators of the traffic and tracking of the heavy loaded vehicles which may
improve the functionality of the road and the Rural Roads will be subjective to the
more safety and good level of service in traffic mobility.
5.2.5 Environment.
Mobility levels, accessibility, road geometrics and connectivity patters are some of
the hidden characteristics which influence the environment in rural sector. The
ultimate objective is to promote a good level of service to the road user and good
environment to the non road user living in the neighbourhood areas. The
environment sustained planning is possible with technology, software interface,
spatial mapping and simulation of the traffic interactions before constructing the
road. In the process of Transect Walk, GPS enabled mapping of the road with the
band width of 50 m collecting the information on land use of obligatory, soil
conditions, terrain conditions and the lead parameters may suggest deviations in
fixing the alignment.
With the GIS interface, overlay of transect mapping on topographic sheets may
further improve the road geometrics due to optimal locations of side drains, CD
works and gradient fixation.
Technology enabled database on material characteristics, land use and geometric
parameters and their interventions will improve the traffic mobility with less
emissions of pollutants. Further, the optimal locations for tree plantations, noise
barriers and controlling measures for land slides may further improve the transport
environment in the rural sector.
5.2.6 Tree plantation along the Rural Roads:
PMGSY Programme Guidelines provide for plantation of fruit bearing trees along
the rural roads constructed under the scheme. However, the cost of this item of work
is to be borne by the States. In this context, it would be suggested to the States to use
the provisions of other Rural Development programmes for tree plantation and
management. The help of Social Forest dept can also be explored in this regard.
Issues
1.
GIS
Architecture
1.1
GIS
Mapping
1.2
Recommendations
Spatial framing of nodes and links with Geo-reference is
essential to understand access patterns, connectivity
patterns and levels of mobility and the functional
configurations of the rural road network with
habitations.
Vectorized GIS Mapping facilitating high resolution
network characteristics with module addition,
customized and menu driven system should be
developed.
Sl.No
Issues
Recommendations
Facilitating the mathematical modeling effort on
neighborhood network analysis, an internal Core
Network analysis for identifying the optimal links to
track higher utility roads for future planning.
Software interface to identity missing links and
junctions to be improved for planning the PPP based
road constructions in the future.
Research and Development is a continuous process to
be focused on characterization of the materials and the
utility in the road construction.
2.1
2.2
2.3
Research and
Optimal designs, maintenance approaches, ITS
Developmen
architecture for monitoring the assets, traffic mobility
t
and 3-D Mapping are essentials for handling
operational, economic and environment sustain rural
infrastructure.
Research and
Developmen
t for tracking
of
Heavy
Load
Vehicles,
Traffic
intensity and
Bridge
condition
assessment.
Sl.No
Issues
Recommendations
different template like braking distance, sight distance,
sight triangle, turning path, glare recovery, perceptional
reactions and peripheral visibilities. In addition, the land
use audit, driver counselling and non road user
counselling, vehicle condition analyzers should also be
considered under mobile based interactions between
rural departments and the society.
It is a transitional medium varies with reference to
change in land use, infrastructure construction and
traffic interactions. The temporal impact caused due to
traffic mobility by virtue of road geometrics, traffic
loading and composition of traffic should be properly
Environment monitored to minimize Carbon Footprints.
Environment sustenance should be assessed with
quantity estimation of pollutants and reciprocative
environment pacifiers with reference to their quantity
and locations.
Hubs
for Technology hub, Interface Hub, Operational hub and
interfacing
Monitoring Hub are essential to operate at regional or
rural roads central level for effective communication and
society and transparency in implementing the rural roads planning,
engineering construction, maintenance and operational activities.
departments
Chapter 6
Quality Assurance in Rural Roads (Other than GIS)
6.1
Introduction:
- Convenor
- Member
- Member
- Member
- Member
- Member
-Member
Members discussed the agenda items and also sought the views of State Quality
Coordinators (SQCs) and NQMs.
6.2. Terms of Reference:
6.2.1 Review of Existing Quality Assurance System for Rural Roads:
(i) Rural Roads Constructed under PMGSY Scheme- A three-tier quality
mechanism is presently institutionalized under PMGSY. First Tier of
Quality control is at Programme Implementation Unit (PIU) level by way
of process control through mandatory tests of material and workmanship
at the field laboratory. Second tier is the quality check of each work at
three different stages during construction, by independent State Quality
Monitors (SQMs) by way of structured inspections in the prescribed
format. The responsibility of first and second tier of quality mechanism
fully vests with respective State Governments. Third-tier is the quality
check by way of random inspections of selected works by Independent
National Quality Monitors (NQMs) who are retired senior engineers
deployed by NRRDA.
(ii) Rural Roads Constructed under Non-PMGSY Schemes- In most of
the States, the quality control aspect in construction of Rural Roads is
being monitored by two tier structure and the responsibility of both tiers
of quality mechanism fully vests with the State Government. The first-tier
In view of experience in construction of rural roads in the past, a three tire quality
management mechanism was adopted under PMGSY. The emphasis on quality
through this mechanism has yielded good results and by and large, roads constructed
under the programme have been found to be of good quality.
6.3.1 Quality assurance system for Rural Roads constructed under NonPMGSY scheme(i)
(ii)
(iii)
It has been observed that some States had not taken the second tire of quality
mechanism as seriously as was desired, however, of late, improvements were
noticed. It is recommended that the states should not only ensure proper
implementation of second tire of QM but also introduce the process of performance
evaluation of independent State monitors and rigorous and continuous action on
observations of these monitors.
6.5
It has been observed that the sub-contracting of works results in the deterioration of
overall quality of works. In order to curb this malpractice of informal subcontracting by the contractors, the following modifications in the sub-contracting
clause of SBD are recommended:
a) It is recommended that no sub-contracting (except for material procurement)
be allowed for which necessary changes be made in the SBD.
b) While inspecting the works, all departmental Supervisory Officers as well as
NQMs/SQMs should specifically look into the aspect of any sub-contracting.
c) Strict action against delinquent contractors is recommended including
forfeiture, recovery, blacklisting, penal etc. and its publicity.
With above remedial actions, it is expected that only genuine contractors will come
forward to quote for tenders.
6.6
The problem arising out of plying of over loaded trucks is not a unique situation in
the rural roads, but is universal on the total road network. Normally, the RTA is to
check the loading of trucks on random basis and impose penalties, when the truck is
found over loaded.
In addition to the above, involvement of the community can be taken up for
containing the menace. After creating a sense of ownership to the community,
particularly on link roads, the trucks found to be over loaded can be stopped through
erecting of barriers, as is being done in some of the countries. This requires the
cooperation of the community and Gram Sabha can tackle the problem. This
arrangement may not be possible for ODRs. On such roads, levying penalties is
necessary through check posts erected at critical points on the road, where the over
loading problem is noticed, by the competent Govt. departments.
6.7
The problems faced by the disabled road users on urban roads are generally nonexistent on rural roads, such as crossing a busy road and negotiating obstruction like
steps etc. Even in the built up areas, the traffic intensity is less and adequate gaps in
the traffic stream would be available for the disabled people to cross the road.
Further, the embankments are not high and even the disabled road users can easily
negotiate the gentle slopes provided on rural roads, except in hilly areas. To
facilitate the disabled persons, when the embankment is marginally high, gentle
slopes are proposed on either side of the embankment at the critical stretches, which
can be used for them to cross the road from one side to the other.
Road over bridges/flyovers are not provided on rural roads generally and where
they are investable, appropriate treatment is to be done for facilitating the disabled
roads.
Chapter 7
Use of Marginal Aggregates, New Materials and Industrial
Waste.
7.1
Background
Rural roads are being constructed as per the IRC recommended specifications
developed exclusively for Rural Roads during 2004 after the launch of PMGSY.
Rural Roads specifications indicate the type and quality of materials to be used for
each layer of the Rural Road namely sub-grade, sub-base, base-course and surfacecourse. However, the use of standard recommended material may pose problems of
their availability in the vicinity of the road being constructed. When such material is
to be brought from far away places the total cost of material enormously increases
due to the lead involved in transportation. The net effect is increased cost per unit
length.
The standard materials recommended are better needed in the higher order roads
where the intensity of traffic is more and the strength required from the crust of the
road is much higher compared to rural roads where the traffic intensity are generally
low, while providing access to smaller habitations. Therefore, there is a need to
conserve standard materials in the use of rural roads where alternatives can be
explored with the use of marginal aggregates, industrial wastes and locally available
and new materials, if available in reasonable leads in the construction of rural roads.
7.2
In some of the states the standard aggregates is not available even at the leads
normally considered economical. However, material of marginally less strength are
available a plenty and their use is to be exploited in the construction of Rural Roads.
Similarly, there are typical local engineering practises in the use of available material
either for the construction of the layers of the road or associated works like
protection works. Examples can be given in this respect like the use of over burnt
brick ballast in place of aggregates or use of aggregate available locally as found in
states like Mizoram. However, it should be noted that in addition to the research
carried out at premier research laboratories such as Central Road Research Institute
(CRRI) and IITs. It is necessary that the research outcome is to be put into practise
through pilot project in different areas with the use of locally available material, in
order to develop scientific methodology for design and construction of rural roads
under the existing soil, traffic and environmental conditions with full documentation.
The performance of such roads is to be monitored for determining the efficacy in the
use of locally available material. Having satisfied with the performance the results of
experimentation can be shared with Indian Roads Congress (IRC) in order to
standardize the design and construction procedures and issuance of guidelines for
general use. One important issue to be kept in view is that when local and marginal
materials are being used there should not be a compromise on quality, performance
and sustainability.
7.3
There are different types of industrial wastes such as Fly Ash, Iron and Steel Slag,
Marble Slurry Dust waste etc. that can be put to effective use in the construction of
Rural Roads. The Rural Roads Manual needs to provide the properties and suitability
of such material for road construction. It is evident that whenever such local
materials are employed for road construction, a detailed material characterization is
to be done in order to understand implications of using such material in the design
and the expected performance of the roads constructed with them. It is to be brought
out here that while lot of research has been carried out at different centres including
CRRI, New Delhi there is a limitation in translating the findings of research on to the
field due to fear of failures and subsequent departmental punishments.
7.4
The Indian Roads Congress, the standards setting body for roads in India has taken
up accreditation of new materials for use in the road construction. The materials
characteristics their application in road construction and the performance of the
roads constructed with the new materials are duly examined by a panel of experts at
Indian Roads Congress (IRC) before giving accreditation. The range of materials
accredited includes soil modifiers for increased strength, materials for providing
water proofing, binders that lead to low absorption of water and such materials for
stabilization of poor soils. The industrial wastes such as furnace slag, metallurgical
slag, copper slag etc have also been accredited by IRC.
In addition to the above materials, IRC accreditation has been given for the use of
Jute Geo Textiles and Coir Geo Textiles both for using in the construction of Rural
Roads as well as side slope protection for higher embankments and deep cuts.
States implementing PMGSY have been informed to take roads as a Technology
Demonstration Projects for assessing the performance of the accredited materials in
the construction of rural roads that may lead to standardization and development of
guidelines by IRC.
7.5
Chapter 8
Road Safety
8.1
Background
The traffic on most existing earthen tracks and substandard existing links consists
mainly of bicycles, some two-wheelers, some animal-drawn vehicles and a few
agricultural tractors. The construction of new links to hitherto unconnected
habitations and upgradation of existing links will generate a considerable amount of
motorised traffic on Rural Roads.
The sudden influx of high speed motorised vehicles to the rural roads can severely
endanger the safety of road users, particularly of vulnerable road users like children
(going to the schools), women carrying headloads of agricultural produce, cyclists
etc. The problem gets aggravated because all the road users utilise the same narrow
road width of a single lane, where crossing and overtaking becomes very difficult.
Moreover, drivers of agricultural tractors, jeeps, light commercial vehicles, twowheelers and buses in the rural areas are not always given to adequate observance of
driving rules and traffic signs. It is thus expected that as the rural roads get
constructed and upgraded, road safety will be an issue requiring serious
consideration. When accidents do take place, trauma care and other facilities
available in hospitals of towns and cities are not within the easy reach of the accident
victims. Under these circumstances, preventive measures, both engineering and
social, must be taken up to the extent feasible.
8.2.
Incorporating appropriate safety design standards and features in the rural roads can
enhance road safety to a great extent. In view of the lower levels of education in the
rural areas, the engineering of roads to constrain users to follow safe driving and
behavioural standards may be necessary to Supplement Cautionary Signboard. Some
of the engineering measures that should be in-built into the design of rural roads are
enumerated below. These issues should also be considered at the time of the transect
walk (See chapter 5) so that the local community alerts the engineers at design stage
itself to local traffic and pedestrian movement patterns that may have road safety
implications.
Rural roads have to necessarily have a tortuous path, keeping in view the
narrow land width available. All the same, the horizontal curves should be
designed scientifically, conforming to the selected design speed and terrain.
8.3.
The horizontal curves must be provided with smooth transition curves and
super-elevation. The pavements should be widened at curves.
The vertical profile of the road should be designed such that the required
minimum stopping sight distance is available. Suitable summit and valley
curves should be provided.
In hill roads, blind curves are a safety hazard. Suitable vision berms may be
cut at such locations.
Passing places must be provided at convenient locations particularly on hill
roads.
The provision of rural connectivity leads to the introduction of bus services.
Properly designed bus-bays must be provided at bus stop to ensure that the
buses do not hamper the normal traffic.
Where the roads pass through habitations and school, it is necessary that the
motorized vehicles travel at low speeds. This can be ensured by providing
adequately designed road humps or rumble strips.
The junction of rural roads with a main road is always a point of conflict and
an accident-prone zone. Such junctions must be designed scientifically by
providing minimum turning radii, flaring of the side road with taper,
acceleration/deceleration lanes and adequate sight distances.
Ramps must be provided where field paths and cattle crossings intersect the
road.
Traffic signage, incorporating warning and regulatory signs, can enhance road
safety, especially near habitations and school zones, sharp curves, narrow
bridges, junctions, submersible bridges and causeways. The design must
incorporate these.
Hazard markers like reflectorized delineators must be provided at dangerous
locations.
Submersible bridges and causeways should be provided with water depth
gauges and guide-posts that shall remain at all times above the highest water
level.
300mm dia ducts should be provided in the embankment to enable cultivators
to thread agricultural wise pipes for irrigating their fields lying on both sides
of the road.
Safety during Construction and Maintenance Operations.
Construction zones create an environment where the road user is confronted with
sudden obstacles and unfamiliar conditions. Safety in construction zones must be
enhanced by:
i. Warning the road users (in the appropriate language) clearly and sufficiently
in advance
ii. Providing safe and clearly marked lanes for guiding road users
iii.
8.4.
Providing safe and clearly marked buffer zones and work zones
o
Barricades, drums, traffic cones, cylinders and signs around work
zones
o
Flagmen with red flags positioned to regulate and warn the road users.
o
Using construction machinery carefully and parking such machinery at
locations where they are not traffic hazards.
o
Stacking construction materials such that only the quantity needed for
one operation is stacked along the road, and obstruction to road users is
minimised.
o
Providing well designed temporary diversions as necessary so that the
essential traffic moves with the least hindrance. The Contractor shall
be asked to provide these as part of his work. The bidding document
and specifications shall elaborate these requirements.
Road Safety During Use
The Head of PIU will be the District Rural Roads Safety Officer (DRRSO). To
ensure operational safety the DRRSO shall ensure that
Routine maintenance of rural roads are regularly carried out.
All safety issues out of maintenance inspection are properly addressed.
In all cases of accidents and inquiry/investigation thereof, safety issues are
resolved, and a report is made to the SQC for examination whether standard
design features need to be incorporated in other rural roads.
All resolutions of Panchayats regarding safety issues are acknowledged and
action proposed/taken intimated to the Panchayat.
Road safety awareness camps are organised involving Panchayats, School,
Rural road users (inhabitants as well as drivers), in accordance with
programmes drawn up by the State Quality Coordinator.
The State Quality Coordinator will be the State Rural Road Safety Officer and shall
ensure:
Adequate coordination with the State Road Safety Council and road safety
programmes.
Formulation of rural road safety awareness programme proposals (for funding
under PMGSY).
Implementation and coordination of rural road safety awareness programmes
in the field.
Hold quarterly meeting with DRRSO and take feedback for improving safety
standards.
8.5.
Institutional Arrangement.
In order to enhance road safety, coordination shall be maintained with the Road
Safety Mission of the MORT&H. At the State level, SQCs and DPIUs shall ensure
coordination with the State Governments Road Safety Programme, in particular
through membership of the State Road Safety Council and District Road Safety
Committees, created as per provisions of Section 215 of the Motor Vehicles Act,
1988 (Act No. 59 of 1988). For this purpose, the SQC may be nominated to the State
Road Safety Council. For each district, the Executing Agency shall designate the
Head of the DPIU or a senior engineer as the District Rural Road Safety Officer
(DRRSO). The State Government shall nominate the DRRSO to the District Road
Safety Committee. The State Government shall also nominate the Panchayati Raj
Institutions designated to take over maintenance to the District Road Safety
Committee. As part of the Rural Road development and maintenance programmes,
the State Government shall ensure road safety audit of construction and maintenance
works along with quality monitoring.
Chapter 9
Grievance Redressal, Sevottam, Citizen Charter and CPGRAM
in Rural Roads
9.1
Introduction:
9.2.
- Convenor
- Member
- Member
- Member
- Member
Criteria
1.1 Implementation
1.2 Monitoring
1.3 Review
2.1 Receipt
2.2 Redress
2.3 Prevention
3.1 Customers
3.2 Employees
3.3 Infrastructure
9.3.2
Initially Draft Citizen Charter & G.R.M were developed taking into
consideration the Guideline issued in this regard.
Informing about the availability of the Sevottam Guidelines on design and
implementation of Cititzens Charter and GRM on the Ministrys website
(www.rural.nic.in), the two documents were circulated amongst the Stake
holders including SRRDAs; Nodal Departments of the State; Directors in
RC Division, MoRD and Directors of NRRDA inviting their comments.
The draft documents were placed on the Website of NRRDA also in the
public domain for inviting comments from the citizens.
Held a brain storming session with the Stakeholders. The session began
with a Power point presentation on Sevottam. Subsequently a series of
meetings were held by the Ministry(MoRD). Suitably incorporated the
views and suggestions in the draft Citizen Charter & GRM.
The Citizen Charter and GRM of NRRDA (Annexure- ) were placed on
the website (www.pmgsy.nic.in) in the public domain .
The SRRDAs have also been requested in meetings at different fora for
preparation of their own Citizens Charter and GRM.
Steps taken to strengthen GRM:
(b) Citizens can register their complaint, comment or query on the Website in
the feedback module. A unique registration number is generated as soon
as the citizen registers complaint which can be used to check the status of
the lodged complaint, etc.
(c) Feedback received are being attended to on a daily basis and are replied
at the earliest possible depending upon the response from concerned State
agencies.
Complaints received through other modes:
Complaints forwarded by Ministry or received directly in NRRDA are examined and
disposed of by the concern Division(s).
However, P-III Division in NRRDA is exclusively attending to the complaints
relating to implementation of PMGSY with quality of the road works in focus. The
Division deputes National Quality Monitors(NQMs), where considered necessary for
inspecting the quality of the road works under construction or completed and takes/
recommends to States for the necessary follow up action for corrective and
preventive measures.
9.4.
(a) In house identification of the gaps between the commitments and services
actually delivered with regard to delivery and quality of services.
(b) Review of Sevottam compliance in meetings of the PRC, RRM,
Empowered Committee, etc.
(c) To conduct self assessment in terms of the SEVOTTAM guidelines and
the objectives involving Stakeholders and representatives citizen groups.
(d) A New module of SEVOTTAM to be added in OMMAS to enable
SRRDAs develop and review their own documents.
9.4.4 Other steps:
(a) To provide SEVOTTAM-RFD Linkage:
OBJECTIVE
ACTION
SUCCESS INDICATOR
Improving
internal Implementation of Create a SEVOTTAM compliance to
efficiency/responsivenes SEVOTTAM
implement, monitor and review
s/
Citizens Charter
Create a SEVOTTAM compliant
service
delivery
of
system to redress and monitor public
Ministry/Department
grievances
Independent Audit of implementation
of Citizens Charter
Independent Audit of implementation
of public grievances redress system
(b) To incorporate in POM and RFD holding of regular review meetings and
the decisions/recommendations from these meetings as a part of the
organisations mainstream service delivery improvement initiatives.
(c)
9.5.
Citizens Charter
(a)
To spread awareness about SEVOTTAM through print, audiovideo and electronic media.
(b) Awareness campaigns at Gram Sabha level through the
representatives of concerned PIU.
(c)
(ii)
Depending upon the nature of the grievance NQMs or SQMs are also
deputed for inspections of Road works.
Chapter 10
10.2
- Convener
- Member
- Member
- Member
- Member
- Special Invitee
The meeting of the Sub-Group was held on 6th July, 2011 at Krishi Bhawan, New
Delhi. The following Members attended the meeting:
1. Shri Rohit Kumar, Director (RC)
2. Shri S.R. Meena, Director (RC)
3. Shri N.C. Solanki, Director (P-I), NRRDA, New Delhi.
4. Smt. P. Anjana Devi, Chief Engineer, Jharkhand State Rural Road
Development Agency, Ranchi
The issues relating to the problems being faced by PIU in LWE/IAP districts were
discussed in detail and a Draft Report was prepared. The Draft Report was
thereafter, e-mailed to the State Rural Road Development Agencies of all the nine
LWE/IAP States in the country to seek their comments.
Subsequently, a Video-Conference was held on 18th July, 2011 with the Principal
Secretaries/Chief Engineers of States in which Officers from Andhra Pradesh,
Chhatisgarh, Madhya Pradesh, Maharashtra and Orissa participated. The Draft
Report and other issues relating to LWE/IAP districts were discussed in detail, views
were exchanged and their feedback were obtained. The draft report was also
discussed with JS(RC), Director (RC-YSD), Director (P-III) and sh. B. P.
Chandrasekhar Ex- Director (Tech), NRRDA. In addition to this, the issues were
also discussed with District magistrates over telephone.
Planning Commission has recently conducted a study of some LWE/IAP districts.
This Sub Group has also gone through that report and has incorporated some of the
observations from those studies.
10.4
5
6
8
Balance habitations to be connected (5) (7)
16,989
9
10
B.
habitations with population 500 and above only were eligible under
PMGSY in non Schedule V areas in LWE Affected Areas/IAP Districts.
b.
c.
d.
C.
D.
Key Observations:
i.
The pace of implementation of PMGSY scheme has been mixed in these districts.
The value of the projects cleared (upto June 2011) in these 60 IAP districts is Rs.
17,646 crore. The expenditure incurred (upto June 2011) is Rs. 11,663 crore. The
average percentage of expenditure as per the value of projects sanctioned in these 60
LWE/IAP districts has been 66% (upto June 2011). On one hand, districts like
Adilabad (Andhra Pradesh), Kawardha, Korea (Chhatisgarh), Anuppur, Dindori,
Mandla, Singrauli, Umaria (Madhya Pradesh), Gondia (Maharashtra), Bolangir,
i.
E.
10.5
Based on the deliberations held in the Workshop held on 13.9.2011, the broad
recommendations on PMGSY were as under:
(i)
(ii) In addition, all habitations with population between 100 and 249 in these
districts may also be covered. Estimated funds requirement is about Rs.
19,340 crore. This may be completed in next three years. Detailed
Proposal may be sent for new Scheme.
(iii) A separate Scheme for Small and Minor bridges, not necessarily
connected with PMGSY roads, needed for the IAP districts to connect all
habitations over next three years. Rs. 500 crore would be required
initially to launch the programme during 2012-13. Detailed Proposal may
be sent for new Scheme.
(iv) Construction of critical Cement-Concrete (CC) Roads in highly affected
blocks in the 60 districts may be permitted. (The Difference in cost of BT
and CC road may be shared by Centre and States on 90:10 basis).
(v) Manual tendering may be allowed in some highly-affected blocks for a
limited period of one year.
(vi) Clustering of PMGSY roads for creating greater synergy from security
point of view may be considered.
(vii) Assessment criteria of bid capacity of contractors may be relaxed so that
smaller contractors can also participate in PMGSY works.
(viii) The time period of execution of road works in these districts may be
enhanced from the existing 18 months to 24 months.
(ix) Specific clauses may be added in the Standard Bidding document to
provide for insurance coverage to machinery engaged in PMGSY works
(x) National Rural Roads Development Agency (NRRDA) may examine use
of modern ground improvement techniques and use of pre-fabricated
bridges to expedite construction.
*******
Final Recommendations
With a view to formulate the 12th Five Year Plan and improve the delivery
mechanism for effective implementation of the programme, the Working Group has
been constituted under the Chairmanship of Secretary, Rural Development with
members from different organizations and subject experts. The Working Group, in
turn constituted sub-committees on different aspects of rural roads. The subcommittees, after series of deliberations, submitted reports, along with
recommendations as under:
Achieving social justice, national integration, and economic upliftment and
inclusive growth through rural connectivity
-
During 12th Five Year Plan, the basic objective should be to achieve the
targets of PMGSY fully including relaxations given to LWE/IAP districts etc.
Also the planning for the PMGSY-Phase-II, as proposed in report , should be
completed.
Need for detailed inspection format for CDs and bridge works
Methodology for evaluation of the quality of completed works:
- Need for evaluation of the quality of PMGSY road should be
based upon various performance based indicators rather than
inspecting the completed works in the prescribed existing NQM
inspection format
The sub-contracting of works more than the prescribed limits in the Standard
Bidding Document (SBD) results in the deterioration of overall quality of
works. In view of above, the prescribed provisions relating to sub-contracting
of works in the SBD need to be followed strictly during execution of Rural
Roads. While inspecting the works, all departmental Supervisory Officers as
well as SQMs/ NQMs should specifically look into the aspect of unauthorized
sub-letting. Strict action against delinquent contractors including forfeiture,
recovery, blacklisting etc. and its publicity.
*****
Annexure-I
Recommendations of Sub-Group-10 relating to Implementation of PMGSY in
LWE/IAP districts.
Sl.
No.
Field Laboratory
Involvement
of
District Magistrate/
Collector,
Superintendent of
Police and District
Forest Officer in
PMGSY
programme
Security
arrangement
Forest Clearance
e-tendering
Use of GIS
10
Use of modern
ground
improvement
techniques
11
12
Proper
rehabilitation
13
14