Overview and Programme Guidelines for

Pradhan Mantri Gram Sadak Yojana (PMGSY I and II)

Prof.B.P.ChandrasekharFormer Technical Advisor,

APSRRDA, Govt. of Andhra PradeshE-mail: sekharbpc@gmail.com

Classifications of Highways in India

⑥ Primary Roads• Expressways • National Highways (NH)

⑥ Secondary Roads• State Highways (SH)• Major District Roads (MDR)

⑥ Tertiary Roads • Other District Roads (ODR) Rural Roads• Village Roads (VR)

Functionalities of the Highways

Primary

Secondary

Tertiary

Relationship of functionally classified highways to mobility and land access.

Rationale for Rural Connectivity Programmes

⦿ Investments in rural infrastructure are more effective than safety nets which reduce the vigour of rural poverty but may not remove it

⦿ Rural infrastructure programmes have a lasting impact on rural development, creating both on-farm and off-farm employment.

⦿ Properly supplemented by policies enabling the rural poor to take advantage of new opportunities, investments in creation of rural infrastructure help in poverty alleviation.

⦿ Hence the Prime Minister’s Rural Roads Programme - PMGSY.

Rural Connectivity Prime Minister Gram Sadak Yojana (PMGSY)

⦿ Provision of all-weather road connectivity to all the habitations with population of 500 or more

⦿ For Hill States, Tribal , Desert Areas and identified IAP districts, minimum population limit is 250 persons

⦿ Up gradation of existing Through Routes and MRLs

⦿ 100% financing by Central Govt.⦿ Maintenance by states⦿ Dedicated implementing machinery at

state and district level⦿ Strong quality assurance mechanism⦿ Online monitoring, management and

accounting system (OMMAS)

Transforming Rural Lives

Increased access to market, health and education Investment of One Million Rupees enables 165 poor people to move above poverty line

Source : IFPRI, Research Report 110, 1999

⦿ Budgetary Support from Government of India.

⦿ Fuel Cess .

⦿ Internal Borrowings .

⦿ Externally Aided Projects

⦿ Asian Development Bank ⦿ World Bank

Funding

⦿ Based on careful analysis of experience gathered in implementation of Rural Roads programmes in the past, programme management systems in PMGSY have been developed.

⦿ Management strategy, aimed at embedding quality awareness in all processes of implementation ,has been put in place.

⦿ Implementation process beginning from planning and up to maintenance management has been developed.

Quality – The Basic Management Policy

Special Features of PMGSY

⦿ Full farm to market connectivity

⦿ Full funding of construction cost by the Central Govt.

⦿ Maintenance funding by State Govt.

⦿ Implementation responsibility with the States.

⦿ National Rural Roads Development Agency (NRRDA) for Technical and Operational management support.

⦿ Dedicated implementing apparatus at State & district level.

⦿ Ensuring Quality Standards in construction

⦿ Five year defect liability

Key Terminology ✓ Habitation✓ Connectivity✓ Cluster✓ DRRP✓ Core Network✓ Through Routes✓ Link Roads✓ Major Rural Links(MRL)✓ CNCPL✓ CUPL✓ Up-gradation✓ All Weather Road

Management Strategy

⦿ Appropriate Institutional Architecture

⦿ Systematic Network Planning

⦿ Structured Project Preparation and Selection Process

⦿ Setting Standards and Specifications

⦿ Standardization of Bidding Process

⦿ Rigorous Quality Monitoring

⦿ Need Based Training, R & D

⦿ Web based Monitoring Mechanism.

Management strategy aimed at embedding quality awareness in all processes of implementation put in place for PMGSY.

Institutional ArchitectureMinistry of Rural Development Nodal Deptt. State Govt.

NRRDA(Management Support)

SRRDA(Programme Implementation)

STA/PTA(Project Appraisal Support)

NQMs(Independent Quality Monitor)

PIU

NRRDA: National Rural roads Development Agency, SRRDA: State Rural Road Development Agency, STA: State Technical Agency, PTA: Principal Technical Agency, NQM: National Quality Monitor,

PIU: Programme Implementation Unit

Systematic Network Planning

⦿A District Rural Road Plan (DRRP) for every Block and District of India

⦿ and a Core Network.

Systematic Network Planning

Selection of Project Proposals and Clearance

CORE NETWORK

CNCPL/CUPL

Selection of Proposal

Approval by SLSC

Preparation of DPRs

Proposals at NRRDA

Recommendation by Empowered Committee

Approval by MRD

Clearance by MoRD

Consultative Process

Scrutiny by STA

Scrutiny at NRRDA

Design and Estimates based on detailed field surveys and soil tests and independent scrutiny by the State Technical Agencies (IITs/ NITs etc).

Setting Technical Standards & Specifications for Rural Roads

Standard setting with the help of IRC:➢ Rural Roads Manual prepared

in 2002.➢ Standard Data Book and

Specifications for Rural Roads published in 2004.

➢ Operational Manual in 2005. ➢ Design of flexible and rigid

pavements for low volume roads.

➢ Gravel Road Manual. ➢ Standards for Steel Bridges.➢ Quality Assurance Handbooks.

Standard & Transparent Procurement Process

⦿ Transparent bidding through Standard Bidding Document developed for PMGSY.

⦿ E-Procurement of works already institutionalized

⦿ Quick Impact Assessment of E-Procurement has shown better participation of contractors leading to competitive prices –Savings.

Quality Assurance⦿ A three tier quality management mechanism

institutionalized under PMGSY.➢ First tier- Quality control at Programme Implementation Unit (PIU)

level. Objective - process control through mandatory tests on material and workmanship at the field laboratory.

➢ Second tier- Regular and structured independent quality monitoring at State level.

➢ Third tier- Independent National Quality Monitors deployed for inspection at random. Objective-guidance and monitoring of quality by a senior independent professional.

⦿ For better results and sustainable quality, quality mechanism is continuously reviewed and refined.

A Symbol of Quality & Sustainability

Online Monitoring System

⦿A Web-based online monitoring system.

⦿Embedded Decision support systems.

⦿Data Base in Citizen’s domain.

Tamil Nadu Bihar

Transparency & Community Participation

➢Citizen Information Board in local language showing Quantity of material in each layer.➢Provision for periodic joint

inspection of field level officers and public representatives.

Other Clauses⦿ Clause 8 : Gives the details of DPR

preparation and expenditure.⦿ Clause 9 : Deals with details of Project

Scrutiny- MPI,MPII and MPIII.⦿ Clause 10 : Empowered Committee.⦿ Clause 11 : Tendering of works- SBD ,

Variation of cost of projects etc.

Other Clauses (contd )

⦿ Clause 12 : PIUs, Admin. Expenses .⦿ Clause 13 : Execution of works⦿ Clause 15 : Quality control and

Supervision of works .⦿ Clause 16 : Monitoring.⦿ Clause 17 : Maintenance of Rural Roads.⦿ Clause 18 : Flow of funds procedure for

release and audit

Other Clause ( contd)

⦿ Clause 21 : Miscellaneous like Training of field and contractor’s personnel, Fruit bearing tree plantation etc.

⦿ Clause 22 : Convergence

What Next !!!

PMGSY II

OBJECTIVE OF PMGSY II▪ Consolidation of Existing Rural Roads Network▪ Up-gradation of Select Through Routes providing access to Growth poles and Rural Hubs and other places of interest.▪ This is expected to serve rural population by providing access to Socio-economic facilities like Health, Education, Marketing, Places of tourist interest.

How it difers from PMGSY I➢ While PMGSY-I is 100% centrally funded, PMGSY II is on cost sharing basis between Centre and States/Uts.➢Targets for up-gradation for each State /UT will be only 25% of the centrally funded target of PMGSY I➢ While in PMGSY-I the programme duration is around 6 Years ( 1 Year construction and 5 year post construction maintenance), for PMGSY II, it would be 12 years (6+1+5)

Special Focus

⦿ Road Safety features, including Road Safety Audit.

⦿ Compulsory use of proven/Innovative Technology for at least 15% of length of roads sanctioned

⦿ Zonal Maintenance Strategy for renewal and further 5 year maintenance

Special Features of PMGSY-II

➢ Commitment of State for improvement of MDR when a rural road meets ➢ Application of Environmental and Social Management Framework

(ESMF)➢ Traffic safety audit (RSA)

➢ Institutionalized second-tier quality control mechanism ➢ Batch maintenance of Through Routes and 50% of Link Roads➢ Strengthening of institutions like NRRDA, SRRDA, PTA/STAs

➢ R&D and use of locally available material➢ Fully online monitoring mechanism➢ 100% e-procurement and e-payments➢ Audit for maintenance fund account

Growth Point, Growth Centre, Growth Pole and Rural Hub

⦿ When the growth Score of a settlement is low, it would qualify as a Growth Point (e.g. a ‘road head’ Settlement where one or more tracks from the hinterland join a road) and as the score increases to a higher level the settlement becomes a Growth Center and further a Growth Pole and finally a Rural Hub.

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Growth Centre and Rural Hub⦿ Growth Centre: A ’Growth Centre’ can be

defined as an area of relatively centralized population, providing rural socio-economic services not only for the area but in a ‘catchment’ area with a radius of several kilometers.

⦿ Rural Hub. A ‘Rural Hub’ is a large Growth Centre, characterized by the fact that it is connected to more than one Through Route (e.g. a T-junction or a crossing) thus giving it a higher potential

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Selection of Roads in PMGSY-II➢ Updation of DRRP and putting it on GIS platform. The proposed GIS

system would contain add on layers of Locally available Materials/Marginal Materials and Maintenance data of roads in

addition to normal Spatial and Attribute data

➢ Identification of growth centres/growth points on the Through Routes (TRs) and Major Rural Links (MRLs)

➢ Growth scores of TRs and MRLs as per the matrix developed

➢ Identification and ranking of roads on the basis of Utility Value per unit length.

➢ Prioritization and preparation of Comprehensive Upgradation cum Consolidation Priority List (CUCPL )duly considering the PCI

➢ Final selection of roads based on allocation of fund.

Finalisation of Proposals⦿ Sending Selected Candidate Roads to Hon’ble MPs

with a request to forward their proposals to District Panchayat

⦿ Hon’ble MPs shall also be indicated the District Allocation of Funds to enable them to select roads with geographical spread subject to funding available.

⦿ Eligible proposals falling within the frame work are to be included. If some proposals are not included, it shall be informed to the elected representatives in writing, indicating the reasons for not inclusion

⦿ Final approval of SLSC is important before preparing the DPRs

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Eligibility and Funding for PMGSY-II➢ All States and UTs would be eligible under PMGSY-II

➢ They can join when 100% of new connectivity and 90% of upgradation targeted works are cleared by MoRD and 95% of new connectivity and 85% of

upgradation works are awarded.

➢ Cost-sharing• Normal areas – 75% Centre and 25% State/UT• Special Areas – 90% Centre and 10% State/UT

➢ The allocation of fund for PMGSY-II would be within 15-20% of the annual PMGSY budget of MoRD.

Eligibility of Roads for PMGSY-II➢ Eligible Through Routes/Link Routes under PMGSY-I but not yet sanctioned.

Such roads will be upgraded to existing carriageway width or higher carriageway width up to 5.5 meters depending upon traffic volume and growth

potential;

➢ Freshly identified Through Routes/ Link Routes in revised District Rural Roads Plan (DRRPs) to be upgraded to existing carriageway width or higher

carriageway width up to 5.5 meters depending upon traffic volume and growth centre potential.

➢ Roads constructed/ upgraded under PMGSY-I, experiencing comparatively higher volumes of traffic justifying upgradation from existing carriageway

width or higher carriageway width up to 5.5 meters covered in the Core network.

Proposed Institutional Arrangement for NRRDA

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Proposed Institutional Arrangement for SRRDAs

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Innovative Technologies Propogated

⦿ Use of Natural Geo-textiles like Jute and Coir

⦿ Use of synthetic Geo-textiles.⦿ Soil Stabilizers like: RBI 81 Terrazyme Nano Technology-Zydex

➢ Cold Mix Technology

Suggested Matrix for Growth Scores

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Matrix of weightages for various amenities in the settlement

Increased Market Access for Farmers

Maharashtra

Tamil Nadu

Improved Transport Services

Bihar

Assam

Gujarat

Improved Access to Schools

Andhra Pradesh

Assam

Improved Access to Health Care

Creating Livelihoods

Gujarat

KeralaKarnataka

Roads Built in Forest Areas

MizoramNagaland

Orissa M P

MAP