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Chapter 1

CHAPTER 1 Introduction

1.1 Village Connectivity in India

India has an essentially rural-oriented economy with 74 per cent of its population living in its villages and has been systematically planning to provide all its villages and habitations with an all-weather road access. At the commencement of PMGSY, it was estimated that about 330,000 out of its 825,000 villages and habitations were without any all-weather road access. Some States like Punjab and Haryana report full or relatively high levels of connectivity. A majority of the poorly connected rural communities lies in ten States (Arunachal Pradesh, Assam, Bihar, Chattisgarh, Jharkhand, Madhya Pradesh, Orissa, Rajasthan, Uttar Pradesh and West Bengal).

1.2. Current plans for Rural connectivity : pmgsy

1.2.1. PMGSY: Time Targetted Programme

Rural Road connectivity is a key component of rural development by promoting access to economic and social services and thereby generating increased agricultural incomes and productive employment opportunities. It is also a key ingredient in ensuring poverty reduction.

Against the above background of poor rural road connectivity, the Prime Minister announced in 2000, a programme to address this backlog. The Prime Minister’s Rural Road Programme (Pradhan Mantri Gram Sadak Yojana, PMGSY) has set a target of.

● Achieving all-weather road access to every village/habitation with a population greater than 1000 by 2003; and

● Providing all-weather road access to all villages/habitations of greater than 500 people [250 in case of hill states (North-East, Sikkim, Himachal Pradesh, Jammu & Kashmir and Uttaranchal) and the desert areas (as identified in the Desert Development Programme)] by the end of the Tenth Five Year Plan, i.e., 2007.

In all cases, preference will be given to habitations having large Scheduled Caste/ Scheduled Tribe population.

The objective under the PMGSY is that every habitation (of the designated population size) should have one all-weather road connectivity. It follows that if a habitation is already connected to another connected habitation (or an all-weather road) by way of an all-weather road, then this habitation cannot be taken up under the PMGSY. It is also indicated in the PMGSY guidelines that no urban roads can be taken up.

1.2.2. Noteworthy Features of the PMGSY

The Ministry of Rural Development (MoRD) has been entrusted with the task of organising the programme.

Some of the noteworthy features of the programme are :

● It is a 100% centrally funded, centrally sponsored scheme with 50% of the cess on High Speed Diesel

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being earmarked for this programme. In the recently announced Budget for 2003-04, a further cess of 50 paise per litre of diesel is proposed for rural road works.

● The States are required to prepare the Master Plans and Core Network for Rural Roads for all the Districts and Blocks, identifying the unconnected habitations and proposing the most cost-effective routes for the purpose.

● The States are required to adopt : i. Guidelines on the implementation of the programme (Annexure I)

ii. Design and Specifications, as contained in the Rural Roads Manual (RRM), published by the Indian Roads Congress (IRC).

The PMGSY is a bold programme of giving all-weather access to a habitations of population above 500 (250 in case of hill States, desert areas and tribal areas) by the year 2007. It is fully funded by the Central Government. The roads are selected on the basis of Master Plans. The works are to be completed within a strict time schedule and shall be of good quality. The maintenance of roads so built for five years is part of the programme.

● Appointment of programme implementing agencies, by all States, typically Public Works Departments (PWDs) or Rural Engineering Organisations (REOs).

● Vetting of implementing agency designs and cost estimates at the State level by independent technical specialists commissioned by MoRD.

● Use of competitive tendering by the implementing agencies of all works in packages of not less than Rs. 1 crore.

● Execution of the works within a period of 9 months (18 months in the case of Hill Roads, North East States, etc).

● A Defects Liability and maintenance period of 5 years specified in the Contracts for the roads constructed under the programme.

● PMGSY funds cannot be used for Land Acquisition. The States can, if they find it necessary, make provision for Land Acquisition using their own funds.

● A central on-line financial and project monitoring system has been set up.

● A strict control over quality of the work is to be exercised.

● An agency known as the National Rural Road Development Agency (NRRDA) has been set up under the chairmanship of the Minister of Rural Development to manage the overall implementation of the programme.

1.3. Resources for implementing PMGSY

It is estimated that the total investment required to meet the targets by 2007 is of the order of Rs 60,000 crores (US $ 12.5 billion, or US $ 1.7 billion per year). In 1999, a one rupee cess on every litre of diesel and petrol sold was imposed by the Government of India (GoI), and in 2000, a Central Road Fund Act was promulgated to direct the resources obtained through this cess to the improvement of National and State Highways as well as Rural Roads. By law, 50% of the diesel cess is required to be directed towards rural road development. This amounts to Rs 2,500 crores (US $ 500 million) per year. An additional cess of 50 paise per litre of diesel sold, recently announced in the Budget for 2003-04, is likely to yield another Rs. 2,500 crores/year. It is thus seen that there is a big gap between the need and the available resources. Additional fund requirements are likely to


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be met through both internal and external borrowings.

The existence of a big gap between the need and the available resources emphasises the point that efforts should be made to select design standards, specifications and construction technology so that durable assets are built at an affordable cost.

1.4. Need for the operations manual

The Indian Roads Congress (IRC) have recently brought out a Rural Roads Manual (RRM) (IRC: SP: 20-2002), which provides guidance on various aspects of rural road development. The requirements of PMGSY were specially kept in view when drafting this document. The NRRDA and MoRD have also issued several guidelines and instructions to the implementing agencies. It was, therefore, considered appropriate to bring out an Operations Manual (OM) in respect of PMGSY roads. It is hoped that the OM will bring about clarity on various aspects of the programme, leading to its timely and successful implementation.

The Operations Manual shall be mandatory for PMGSY works. The Accounts Code and Works Manual of the States shall continue to be used.

It is intended that the contents of the manual will be reviewed and revised according to the experiences gained during implementation.

Under the PMGSY, District Programme Implementation Units (DPIUs) have been set up. The OM is specifically targetted to these DPIUs.

The OM shall cover fully the PMGSY programme. It will be mandatory on the part of the State implementing agencies to follow the OM in every respect. Since the OM embodies various instructions issued earlier, it supersedes such instructions. Where the OM refers to certain clauses of the IRC Rural Roads Manual, such clauses shall prevail. The Accounts Code and Works Manual of the States shall continue to be used, and if provisions in the OM contradict these, the attention of the NRRDA must be drawn and specific orders obtained from them.

1.5. Key definitions

1. Rural Roads

For purposes of this OM, Rural Roads cover the categories of “Other District Roads” (ODRs) and “Village Roads” (VRs), defined as under :

❍ Other District Roads: These are roads serving the rural areas of production and providing them with outlet to market centres, block development, taluka/ tehsil headquarters or main roads.

❍ Village Roads :These are roads connecting villages and group of villages with each other or to the market centres and with the nearest road of higher category.

2. All-Weather Roads

An all-weather road is one which is negotiable during all weathers, with some permitted interruptions as given below :

At cross-drainage structures, the duration of overflow or interruption at one stretch shall not exceed 12 hours for ODRs and 24 hours for VRs in hilly terrain, and 3 days in the case of roads in


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plain terrain. The total period of interruption during the year should not exceed 10 days for ODRs and 15 days for VRs.

The pavement should be negotiable during all-weathers, but this does not necessarily imply that it should be paved or surfaced or black-topped. The pavement should consist of metalling (WBM) or higher type where rainfall is more than 1500mm/ year and should at least be of material better than local soil, such as moorum, gravel, kankar, laterite etc where the rainfall is less than 1500mm/ year.

3. Fair-Weather Roads

Fair-weather Roads are those not satisfying the minimum requirements specified for all-weather roads. These roads should be taken to be in a stage of development to be improved subsequently for conversion into all-weather type.

4. Unpaved and Paved roads

Unpaved or Unsealed roads vary from ‘clay’ roads which can only serve dry-season light traffic to heavy duty crushed rock industrial roads which can serve heavy traffic. Typically, such roads are used for providing rural access, carrying an average of 20 to 100 vehicles per day. The base course of such roads is made from local materials e.g., natural gravels and generally using well-tried traditional methods of construction. In sustained wet weather, the unsealed roads may develop deficiencies such as rutting and potholing. On the other hand, in dry seasons, such unsealed roads can become dusty and develop corrugations. Paved or Sealed Roads are those which are rendered water-proof and dust-proof by a surfacing or base-cum-surfacing of bituminous materials or cement concrete.

5. Village/ Habitation

The unit for this Programme is a habitation and not a revenue village or Panchayat. A habitation is a cluster of dwellings, in an area, the location of which does not change over time. Desam, Dhanis, Tolas, Majras, Hamlets etc. are commonly used terminology to describe the habitations. The population of all habitations within a radius of 500m (1.5 km of path distance in case of hills) may be clubbed together for the purpose of determining the population size. This cluster approach would enable provision of connectivity to a large number of habitations, particularly in the hill/ mountainous areas.

The population size of the habitation shall be based on the population as recorded in Census 2001. The District Rural Road Plans and Core Network shall be drawn up/ revised on this basis.

6. Accessibility Criterion

The criterion of accessibility when any village/ habitation is deemed to have been connected by a rural road is generally the permissible maximum distance of the habitation from an existing all-weather road facility or from an already connected habitation. This permissible maximum distance has been recommended as 500m (0.5 Km) for the plain areas and 1.5km of path distance in case of hills for the PMGSY. The unconnected habitations are to be connected to nearby habitations


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already connected by an all-weather road or to another existing all-weather road so that services (educational, health, marketing facilities etc.) which are not available in the unconnected habitation become available to the residents.

7. District Rural Roads Plan (DRRP)

The DRRP is long-term plan of road network in a district, showing the existing road network, the habitations of various population size and roads proposed for connecting the yet unconnected habitations to already connected habitations/ all-weather roads in an economic and efficient way in terms of cost and utility. It is also known as the Master Plan for Rural Roads for the district.

8. Core Network

The rural road network required for providing the ‘basic access’ to all villages/ habitations is termed as the Core Network. The basic access is defined as one all-weather road access from each village/ habitation to nearby Market Centre and essential social and economic services.

A Core Network comprises of Through Routes and Link Routes. Through routes are the ones which collect traffic from several link roads or a long chain of habitations and lead it to the higher category roads, i.e. the District Roads or the State or National Highways. Link Routes are the roads connecting a single habitation or a group of habitations to Through Roads or District Roads leading to Market Centres. Link Routes generally have dead ends terminating on habitations, while Through Routes arise from the confluence of two or more Link Routes and merge on to a major road or to a Market Centre.

9. Market Centres

Market Centres are centres of activities for marketing, agricultural produce and inputs, health, education, postal services, banking and servicing of agricultural implements etc. They are generally habitations with a large population, located on higher category of roads or at the confluence of roads leading from a number of habitations. They can be identified from data available from published census records, information available from Marketing Boards and local enquiry. The villagers should be able to go to the nearby Market Centre and come back within one day. The maximum distance between a village and a Market Centre would normally not be more than 15-20 km. In some cases, a Market Centre may not be fully developed at present, but a big village may have potential for developing into a Market Centre. Such villages also need to be identified as potential Market Centres.

1.6. Programme Objectives

1.6.1. New Connectivity

The primary objective of the PMGSY is to provide connectivity, by way of an all-weather road (defined in para 1.6 earlier) to the unconnected habitations in rural areas, in such a way that:

● habitations with a population of 1000 persons and above are covered in three years (2000-2003)● all habitations with a population of 500 persons and above are covered by 2007 (the end of the


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Tenth Five Year Plan). In respect of the hill States (North-East, Sikkim, Himachal Pradesh, Jammu & Kashmir, Uttaranchal) and the desert areas (as identified in the Desert Development Programme) as well as Tribal (Schedule V) areas, the objective would be to connect habitations with a population of 250 persons and above.

The primary objection of the PMGSY is to provide new connectivity. However, upgradation of existing roads shall be permitted in Districts where full connectivity has been achieved.

The spirit and objective of PMGSY is to provide good all-weather road connectivity to the unconnected habitations. It must be ensured that the provision of New Connectivity (i.e. connecting unconnected habitations) should be given precedence over any upgradation works in keeping with the objectives of the Programme.

1.6.2. Upgradation

Upgradation is not central to the programme. However, the programme will permit upgradation of existing roads to the prescribed standards in those Districts, where all habitations of the designated population size (para 1.6.1 above) have been provided all-weather connectivity. The provision for upgradation cannot exceed 20% of the State’s allocation as long as unconnected habitations still exist in the State. In other words, District-wise allocation is to be done on considerations of equity, but in such a way that new connectivity still gets priority by keeping a ceiling of 20 percent at the State level for upgradation works. Upgradation shall also be permitted in cases where the new link connects to a fair-weather road which leads to a Market Centre. All roads to be upgraded shall form part of the Core Network.

Upgradation shall cover the following types of works:

1. Constructing all missing cross-drainage works to make the road all-weather. 2. Improving the road pavement, as justified by a condition survey (see Chapter 3). 3. Constructing all missing bridges of a waterway upto 15m. Longer bridges between 15 and 25m would

also be admissible but only after inspection by a joint team of State Technical Agency and Senior Engineers of the rank of Superintending Engineer or higher, who shall confirm the need for as well as design of the proposed structure. Due consideration needs to be paid to the cost and benefits accruing from the bridge. In case of hill States, the length of the bridge could be longer, but the cost of one structure should not normally exceed Rs 25 lakhs. The bridges may be so designed as to serve, where feasible, as Bridge-cum-Bandharas. However, in such cases, prior commitment of the beneficiary group/ village Panchayat regarding their maintenance should be obtained.

1.6.3. Works not Covered by PMGSY

The PMGSY does not cover works on roads giving connectivity to a village already connected, repairs to existing surfaced roads, urban roads and on roads not forming part of the Core Network.

1. The following works are not covered by PMGSY: PMGSY envisages only single connectivity to be provided. If a habitation is already connected to another habitation (or to an existing all-weather road) by way of an all-weather road, then no further work can be taken up under PMGSY at that habitation.

2. PMGSY does not permit repairs to black-topped or cement concrete roads, even if the surface condition is bad.

3. No urban roads can be constructed under the PMGSY. For instance, two villages cannot be connected


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through an urban area.

4. PMGSY does not permit any road work to be taken up that is not part of the Core Network.


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CHAPTER 2

planning

2.1. preparation of master plan

2.1.1. The Need for a Master Plan

With the commencement of PMGSY in December 2000, a well-planned time-bound programme has been

undertaken by the GOI to provide basic access to all unconnected habitations with 500+ population,

numbering about 1.5 lakhs. However, after the PMGSY targets are achieved by 2007, there would still be

about an equal number of habitations of lower population levels remaining to be provided a basic access.

Moreover, it is yet unclear if all the 5 lakh already connected habitations prior to the commencement of

PMGSY have an all-weather road access or some of these are still fair-weather in nature.

Undoubtedly, the ultimate objective to provide basic all-weather access to each habitation, irrespective of its

population. In order to achieve this objective, it is necessary that, at this stage, a comprehensive one-time

Master Plan be prepared providing for one basic access to each habitation, irrespective of its population

(upto 100), utilizing the existing rural roads to the maximum extent possible. The priorities for construction of

new rural roads needed for providing connection to all unconnected habitations and for upgradation of

existing roads, as may be needed, can be assigned according to the targets set from time to time. Such a

Master Plan can go a long way towards a systematic and balanced growth of rural roads in the country,

eventually bringing about considerable savings in the investments needed to accomplish the task of

providing one basic access to each habitation.

2.1.2. District Rural Roads Plan (DRRP)

The District Rural Roads Plan is a compendium of the existing road network system in the District and

clearly identifies the proposed roads for connecting the yet Unconnected Habitations to already connected

Habitations/ All-weather roads, in an economic and efficient way, in terms of cost and its utility.

The District Rural Roads Plan would basically be prepared at two levels – the Block and the District. It will

then be vetted at the State level. Keeping in view the convenience from the point of Map preparation and

Data collection, the work would primarily be done at the Block level. Block-wise Road Plans would be

prepared in accordance with the directions contained in this Manual and the priorities spelt out by the

District Panchayat. After the Block-wise Master Plan has been placed and approved by the Intermediate

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level Panchayat, they would be forwarded to the District Planning Committee (DPC), where the Block Road

Plans would be integrated into the District level Master Plan, called the District Rural Roads Plan. This

would be placed before the District Panchayat (or the District Rural Development Agency - DRDA where the

District Panchayats do not exist) for consideration and approval. Finally, these would be forwarded by the

PIU to the State level Standing Committee and after it has been vetted at the State level, it would become

the final District Rural Roads Plan, which would form the basis for selection of road works under the

PMGSY.

It is possible that there are some errors and deficiencies in the DRRP and Core Network, due to obvious

factual inaccuracies such as population data. To remedy such errors, the affected people can make a

representation. Such representations shall be carefully examined by the PIU and action shall be taken to

amend or correct the DRRP. The approval of the State Level Standing Committee shall be obtained for such

changes.

2.1.3. Programme Implementation Unit (PIU)

Each State has been asked to identify an Executing Agency for the execution of the Programme. The

Executing Agency is expected to set up the Programme Implementation Unit (PIU) in each District. The

Preparation of the Master Plan for each Block is the responsibility of the PIU, who must ensure that it has

the approval of the Panchayati Raj Institutions. Care must also be taken to see that the proposals of the

MPs and MLAs, who have an intimate knowledge of their areas are taken into consideration while

preparing/ finalising the Plans.

In most States, the Public Works Department (PWD)/ Rural Engineering Service (RES) have been identified

as the Executing Agency by the State Government. The PIU at the District Level is usually headed by a

Superintending Engineer/ Executive Engineer of the Division of the PWD/ RES. The responsibility of

preparation of Master Plans lies the PIU.

2.1.4. The Ten Steps

The Ten Major Steps in the preparation and finalisation of the District Rural Roads Plans are as under :

1. Constitution of the Team2. Preparation of Data base3. Map preparation 4. Preparation of a list of Unconnected Habitations and the selection of the optimal road links 5. Consideration and approval by the Intermediate Level Panchayat


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6. Submission of the Block Level Rural Roads Plan to the District Planning Committee/ Chief Executive Officer/ District Collector7. Scrutiny by the District Planning Committee/ Chief Executive Officer/ District Collector 8. Consideration and approval by the District Panchayat 9. Forwarding of the District Rural Roads Plan to the State Level Standing Committee10. Vetting of the District Rural Roads Plan by the State Level Standing Committee

2.1.5. Step-I : Constitution of the Team

The first step in the preparation of the Rural Roads Plan is the identification of the team of officers who

would perform the work at the Block level. The Team, for this purpose, should ideally include the BDO, a

Revenue Officer of a suitable rank, and, such other officers, from any other Department, as deemed fit by

the State Government, and the Engineer of the PIU as the Member Secretary of the Team. The senior most

officer should be designated to lead the Team. The Chief Executive (Secretary) of the District Planning

Committee/ Chief Executive Officer, Zilla Panchayat/ District Collector would select the teams for this

purpose at the District and Block levels.

Thereafter, the Team should arrange to collect data on all items which would be required for the preparation

of the Block-wise Road Plans. These are as follows:

(i) An authentic map of the Block/ District on 1: 50000 scale based on Survey of India Topo-sheets.

(ii) 2001 Census Data

(iii) Existing road maps and road inventory details

(iv) Block/ District level Statistical Handbook

In case where the 2001 Census Data has not been officially released, these would still be available in the

office of the Block Development Officer/ Tehsildar/ District Collector. Since the population of the Habitations

would have changed considerably in the last ten years, it would be prudent to make use of the latest

Census figures.

2.1.6. Step-II : Preparation of Database

2.1.6.1. The Team should thereafter undertake the task of tabulation of Data, derived from the Secondary

Sources, relating to Habitation and Rural Road inventory.

2.1.6.2. Habitation Level Data

Although Habitations with population of more than 500 persons only (250 in Hilly areas) are to be taken up

under the PMGSY, for the purpose of preparation of the District Rural Roads Plan, it is recommended that


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all Habitations having a population of 100 or more persons and, which are more than 500 metres (half-a-

kilometre) away from each other, should be listed and separately identified on the map.

2.1.6.3. Each Habitation has to be given a specific code number, its population as per 2001 Census

indicated and facilities available in the Habitation should be clearly filled up in a tabular form, as shown in

FORMAT-I. INSTRUCTION-I (Annexure 2.1) provides the explanation to abbreviations etc., helpful in filling

this format. This code shall contain a combined identification of state, District, Block and Habitation code to

make a unique alphanumeric code (Annexure 2.4). The last two columns of the FORMAT-I shall be filled

after completing FORMAT-II (Annexure 2.2) and making the information compatible and connected.

2.1.6.4. Rural Road Inventory

A comprehensive inventory of all Rural Roads, including Other District Roads (ODR) and Village Roads

(VR), and any other existing earthen roads, having a land width of 5 metres or more, is to be prepared at

Block level. FORMAT-II gives the tabular form to fill up the Road inventory details, and INSTRUCTION-II

gives the procedure for filling the Format. All these roads have to be shown in the Block map, indicating the

code number for each road.

2.1.6.5. Condition survey of existing rural road network

2.1.6.5.1. Purpose of the condition survey

The inventory of the road network prepared as per para 2.1.6.4 above gives an overall assessment of each

road link. It does not give a detailed account of each km of the road, in terms of its present condition. Such

a data is needed for selecting projects for upgradation or maintenance. A reference may be made to

Chapter 13 for using the data for maintenance management.

2.1.6.5.2. Data collection

The condition survey formats are given in Annexure 2.3.

The first form (FORM I) gives the general information on each road, such as:

•

The District Rural Road Plan is prepared after collecting details of habitations and an inventory of existing Rural Roads. The Condition survey of Rural Roads to arrive at a rating (PCI) is part of this task.


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Name

• Terrain • Length • Year of construction • Year of last renewal• Specifications

The second form (FORM II) gives kilometer-wise distress type, severity and density, safe travel speed and

riding comfort etc.

The inspection can be done once a year without taking the help of any automated equipment instruments

like Bump Integrator. The idea is that similar data should be collected by the PWD staff themselves routinely

and the work should be sustainable given the skills available with the junior level staff.

The distress to be measured and recorded at each km are:

• Rut depth • Crack width • Per cent area rutted • Per cent area cracked • Per cent area with depressions and potholes • Condition of shoulders

The rut depth is measured by a gauge as can be seen in Fig. 2.1.1. Fig. 2.1.2 shows a gauge for measuring

crack width.

For recording the distress type and density, visual assessment is to be done. For example, Fig. 2.1.3 shows

three levels of surface cracks:

i) None or slight ii) Moderate iii) Severe

Fig 2.1.4 shows how the condition of the shoulders is visually assessed.

Besides the kilometrewise information on the severity of cracking and rutting as well as density of cracking,

rutting, potholes and depressions, the condition of shoulders, drains and cross-drainage works is also

recorded. The normal travel speed in km/hr and the riding comfort at the design speed of 50 km/hr are

recorded. The traffic is also counted as part of the visual inspection of the road.

Based on visual inspection only, a Present Condition Index (PCI) of 1 to 5 is adopted, as under: -


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Description of Surface Condition PCIVery Good 5Good 4Fair 3Poor 2Very Poor 1

Based of ‘Riding Comfort’, while driving at the design speed of 50 km/hr, the PCI is assessed as under:

Riding Comfort @ 50 km/hr PCISmooth and Pleasant Ride 5Comfortable 4Slightly Uncomfortable 3Rough and Bumpy 2Dangerous 1

Based on the Normal Driving Speed, the PCI is assessed as under:

Normal Driving Speed PCIOver 40 km/hr 530 to 40 km/hr 420 to 30 km/hr 310 to 20 km/hr 2Less than 10 km/hr 1

Illustrations of pavement performance at the five levels of ‘Present Condition Index’ are given at Fig. 13.1 in

Chapter 13 of this Manual.

However, in order to assess the condition of a rural road system in quantitative terms, it is not enough to

restrict the observations only to the pavement proper or carriageway; the roadside shoulders should also be

included in the assessment of the condition of the rural road system.


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Fig. 2.1.1 : Gauge for Measuring Rut Depth


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Fig. 2.1.2 : Gauge for Measuring Crack Width

None or Slight

Moderate

Severe


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Fig. 2.1.3 : Levels of Severity of Cracks

Good or Slight Deficiency

Moderate Deficiency


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Severe Deficiency

Fig. 2.1.4 : Levels of condition of shoulders

Condition rating of the shoulder may be as under:

Good 1Fair 2Poor 3

The shoulder condition should be included in arriving at the overall PCI rating for the Km. Thus the survey

will yield values of PCI for each km of the road, ranging from 1 (very poor) to 5 (very good). The PCI rating

for the entire road shall be the arithmetic average of the PCI values of each Km. The PCI rating for each Km

will be a key parameter for deciding on maintenance/ upgradation of each portion of the road.

2.1.6.6. Primary and Secondary Road Data

The National Highways (NH), State Highways (SH) and Major District Roads (MDR), which form the primary

and secondary road network in a region, will also be required for analysing connectivity of Habitations.

Therefore, a record of all such roads passing through the Block shall be prepared as indicated in FORMAT-

III (Annexure 2.5).

It may happen that the data available through the Secondary sources may not be accurate or up to

date. These would, therefore, have to be physically verified through field visits. The most important

activity in preparation of Data base is the actual field visit. This must be undertaken with great care as

the accuracy of maps and the data collected and tabulated in FORMATS I, II & III, would depend on the


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rigour and discipline exercised during the field visit.

2.1.7. Step-III : Map Preparation

2.1.7.1. After the data base has been prepared from Secondary sources as well as verified through

exhaustive field surveys, the Team would commence the task of Map preparation. Needless to say,

this activity should also be performed with care and diligence. The exercise should be closely

supervised by the Engineer of the Programme Implementation Unit. Mapping should be done by

trained draftsmen, who are normally available with all Engineering Organisations/ Revenue

Departments.

2.1.7.2. Block Rural Roads Map

The data already collected now has to be transformed into maps. The map should also show the latitudes

and longitudes. This will facilitate the sequential arrangement of the Block Maps and in the preparation of

the District map. The basic Rural road map shall be prepared at the Block level. The scale to be adopted is

1: 50,000. For convenience, Survey of India topo-sheets available on this scale can be used as the base.

On this map, the data collected on the habitations (para 3.1) and the Rural Road network (para 3.2) shall be

incorporated. The map shall be drawn indicating the following details.

2.1.7.3. Boundaries

All the administrative boundaries should be shown as below:

State and National, if any District Boundary

Block Boundary

2.1.7.4. Road Network

The Road Network map should show the existing alignment (location) of National Highways, State

Highways, Major District Roads, Other District, Village Roads and Other Roads, which have land width of 5

meters or more, accurately using the information compiled in FORMAT-II. The legend to be used for

denoting these features (also railways, if any) on the map are as under:

Roads/ Railways

Railways


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NH

National Highways

SH/MDR

State Highways/ MDRs

All-weather Rural Road

Fair-weather Rural Road

(all existing cart-tracks, kutcha roads etc having land width 5m or more)

RED

The core network should be coloured

Red, above the all-weather/ fair-weather Rural

Road

ALL-WEATHER RURAL ROAD

FAIR-WEATHER RURAL ROAD

Cross drainage Structure

Water Bodies (rivers &

canals)


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Blue

The habitations shall be shown as under

Market Center ✫

Village Population > 1000 o

Village Population 500 – 1000 ∆Village Population < 500 o

Unconnected Village/ Habitation o ∆ o

Location of Habitations

The three digit Habitation Code should also be indicated beside the circle with colour code. While

numbering the Habitations, it should be remembered that this will be a three digit code and would basically

be the serial number of the Habitation in the Block.

Following additional features should also be indicated on the map, as per their availability in the area.

(i) Places of tourist, religious and historical importance ⊗(ii) Quarry site QS

The use of too many colours makes the presentation and interpretation of the maps difficult. The following

colour scheme may be adopted:

The existing roads should be shown in black, while the ultimate “Core Network” should be shown in Red.

The proposed roads for linking the unconnected habitations shall be shown dotted in red. The legend for the

habitations of various population size is also indicated therein. All habitations should be named in the map.

All the Block level maps should then be integrated to a District level map, taking care to match all roads,

railway lines, rivers, canals etc. The District level map shall be to the same scale as the Block level maps.

The latitude and longitude lines shall be shown on the maps.

The maps should in due course be got digitised so that it becomes easy to put them all on a computer-

based system, preferably on a GIS platform. Separate detailed instructions will be issued by NRRDA in this

regard in order to facilitate a web-based GIS which can be used for monitoring and decision support.

2.1.8. Step-IV : Preparation of the list of unconnected habitations and the selection of optimal

road links

2.1.8.1. Now the Team has to undertake the task of using the available data and the information available


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from the Map to prepare the Rural Roads Plan of the Block.

2.1.8.2. The Team should make two separate lists of Unconnected Habitations : (i) those which are

connected only by a fair weather road which needs to be upgraded to the prescribed specifications and (ii)

those which have no connection at all, not even by a fair-weather road. Both the lists should be in

descending order of their population. A Habitation with higher population will rank higher in the list.

2.1.8.3. Once the lists have been prepared, the next task is to find out the most efficient and economic

route, in terms of cost and utility, for providing access to an existing All-weather road or to an already

connected habitation, offering a route leading to the nearby Market Centre and, which best fulfils the needs

of the residents of the Unconnected Habitation. Studies have revealed that upto 95% of the trips made by

villagers are to Market, Health, Education and Administrative centres. Consequently, while selecting the

road link, the Team would have to take into account the requirements of the residents of the Unconnected

Habitation and also see as to which connection best serves their needs. The views of the Village Panchayat

or the Gram Sabha may also be ascertained for this purpose. The Team can also make use of the Utility

Value of Habitations in the vicinity of the Unconnected Habitation which are presently fulfilling the needs of

the residents.

2.1.8.4. Utility Value

The Utility value of a Habitation can be calculated by giving appropriate weightages, inter alia, to a set of

socio-economic/ infrastructure facilities (Health, Education, Markets) and administrative centres.

The District Panchayat (or the DRDAs, where the District Panchayats do not exist) shall be the

competent authority to select the variables best suited for the District, categorise them and accord

relative weightages to them. This shall be done before the work commences with respect to the

preparation of the District Rural Roads Plan and shall be communicated to all concerned, so that the

task of preparation of the District Rural Roads Plan can be accomplished in an objective manner.

This is the responsibility of the District Panchayat.

An example of how the District Panchayat can determine the Utility Value of those Habitations, which fulfil

the needs of the Unconnected Habitations in the District, has been shown in Table-2.1. The Table provides

a suggested structure of Utility Value.

Table 2.1The Indicators and the Utility Value – An illustrative example


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Sl. No. Indicators of the Habitation

Rating of Indicators (Weightages)

2 4 6 8 10

1. Educational Facility

Primary school Middle school High school Intermediate College

College

2. Health Facility Dispensary Sub Centre Maternity and Child Welfare Centres

Primary Health Centres

Hospital

3. Market Facility One day More than One day

Daily Market + Shops

4. Administrative Centre

Panchayat HQ Block HQ Sub-Division HQ

District HQ

It is again reiterated that indicators and the weights assigned to variables in the above Table are only

indicative. The District Panchayat must select the indicators and their weightage before the Planning

Exercise is initiated.

The selection of the most efficient link to a habitation can be made on the basis of (i) the number of people benefited per unit cost or unit length or (ii) the Road Index calculated from Utility Value.

The Unconnected Habitations would be ranked on the basis of their population. Quite often, an Unconnected Habitation can be connected to more than one Habitation. But, since PMGSY envisages only single connectivity, it is necessary to choose the most economic and efficient road link. The choice of road link to a Connected Habitation or an existing All-weather road (which ensures access to a Habitation which serves the needs of the residents of Unconnected Habitation) is determined by the

number of people benefited per unit cost, i.e. . The higher this ratio, the more attractive is the link. As an alternative, the choice can also be determined by the Road Index of the respective Road links. The road link which has the highest Road Index should be preferred.

2.1.8.5. Road Index

The Road Index can be calculated by taking the Utility Value (UV) of the Habitation providing the requisite

services to the Unconnected Habitation and dividing it by the length of the proposed road link. The link

having the highest Road Index should be selected.

Road Index =


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Where, UV = Utility Value and L = Length of the proposed road link

2.1.8.6. Selection of Links

Apart from the Utility Value and Road Index, it may be necessary to take into account local factors while

deciding the proposed road link. An alternative approach would be to rank the roads on the basis of

population served per Km of road or per lakh of rupees of investment. The Team will have always to bear in

mind the fact that the proposed route should be the shortest, economical and at the same time one which

satisfies most of the requirements of the Unconnected Habitation.

2.1.8.7. Calculation of Road Index in Case of Upgradation

As regards the prioritisation and choice of road links for Habitations already connected by All-weather

WBM/Gravel roads requiring Upgradation to BT standards, the Road Index can be similarly determined by

dividing the Utility Value by the length of the road link. The PCI values, determined as per para 2.1.6.5, can

be used for determining prioritisation strategies for upgradation and maintenance.

2.1.8.8. Proposals of MPs and MLAs

The proposals of the MPs and MLAs would be taken into account by the Team preparing the Draft Rural

Roads Plan for the Block. A specific list would be made of the roads suggested by the MPs and MLAs and

remarks indicated whether they are included or not; if not, the reasons there of should be recorded. The

Team would them prepare the Draft Rural Roads Plan for the Block.

2.1.9. Step-V: Consideration and Approval by the Intermediate Panchayat

This Draft plan would be presented before the Intermediate Panchayat by the Leader of the Team preparing

the Draft Rural Roads Plan for the Block. In this meeting, Revenue Officers of appropriate level, who have

knowledge of the area, may also be called. The Plan should be finalised by the Intermediate Panchayat.

Any changes made by the Intermediate Panchayat, should be separately mentioned and causes thereof,

should be indicated.

2.1.10. Step-VI : Submission of the Block Rural Roads Plan to the District Planning

Committee/ Chief Executive Officer/ District Collector

The Team will, after obtaining the approval of the Intermediate Panchayat, submit the Block Rural Roads

Plan to the District Planning Committee, where these have been constituted. In its absence, the Plan would

be submitted to the Chief Executive Officer/ District Collector with original map, all the Formats and Tables.

The Team would record its views in case it feels that the Intermediate Panchayat has deviated from the


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Guidelines in this regard.

2.1.11. Step-VII : Scrutiny by the District Planning Committee/ Chief Executive Officer/ District

Collector

2.1.11.1. The District Planning Committee is the body created in the District for ensuring proper preparation

of Plans for the development of the District. The District Rural Roads Plan is one which would have a

tremendous bearing on the all round socio-economic development of the District. Therefore, it is appropriate

that all the Block Rural Roads Plans are scrutinised by the District Planning Committee.

2.1.11.2.

The DRRP shall be framed after consultations with MPs and MLAs and the Panchayat Raj Institutions. It shall be finally vetted by the State Level Standing Committee.

After the Rural Road Plans have been received from all the Blocks, the same would be scrutinised by the

Chief Executive of the District Planning Committee/ Chief Executive Officer/ District Collector. He would be

assisted by a Committee comprising of the Head of the District Programme Implementation Unit (Member

Secretary; Superintending Engineer/ Executive Engineer PWD; Executive Engineer, Rural Engineering

Service and senior officers of the Revenue/ Rural Development Departments, as Members. They should

look into the deviations, if any, made by the Intermediate Panchayat and the justifications therefor. They

must ensure that the Road Plan is according to the Road Index, calculated as per the weightages fixed by

District Panchayat, and also the proposals of the MPs and MLAs have been duly considered. If any

provision made by Intermediate Panchayat or the Committee preparing the original plan, is not as per the

Guidelines, such provisions should be changed. The reasons, thereof, should be mentioned clearly.

2.1.11.3. The Committee should, after collating all the Block Rural

Road Plans, prepare on the prescribed format (Annexure 2.6) the draft

District Rural Roads Plan. It would also contain the priority list of road

works to be taken up under the Pradhan Mantri Gram Sadak Yojana, in

line with the principles already enunciated.

First and foremost, it needs to be clarified that the district-level ‘Master Plan’ should, in the first instance,

provide for one basic access to each habitation, irrespective of its population (upto 100). It is only after such


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a comprehensive Master Plan has been prepared that the rural roads that need to be constructed or

upgraded to connect the yet unconnected habitations of 500+ population targetted by the PMGSY, should

be identified. While identifying the rural roads for new construction and/ or for upgradation under the

PMGSY to the desired all-weather standards, preference should be given to such routes as would connect

as many of the lower population level (<500) unconnected habitations as may be possible in the process of

connecting the unconnected 500+ population habitations.

2.1.12. Step-VIII : Consideration and Approval by the District Panchayat

The Draft District Rural Roads Plan would then be presented to the District Panchayat by the Chief

Executive of the District Planning Committee. MLAs and MPs should be specially invited to this Meeting.

Members of the Committee, who prepared the District Rural Roads Plan, should be present in the Meeting.

It should be discussed and adopted by the District Panchayat, with such changes, as may be considered

appropriate, but strictly within the framework of the PMGSY Manual. If the District Planning Committee has

any reservations about the changes proposed by the District Panchayat, their views should be mentioned

clearly.

2.1.13. Step-IX : Forwarding of the District Rural Roads Plan to the State Level Standing

Committee

After approval by the District Panchayat, the District Rural Roads Plan, along with the District Priority list,

would be forwarded to the State Level Standing Committee.

2.1.14. Step-X: Vetting of the District Rural Roads Plan by the State Level Standing committee

2.1.14.1. The District Rural Roads Plan would be vetted by the State level Standing Committee, headed by

the Chief Secretary/ Additional Chief Secretary, as the case may be. The Committee could call the Chief

Executive Officer/ District Collector to present the Plan before the Committee. This Committee should go

into the details of the Plan and priorities and links decided by the District Panchayat. The changes made by

the District Panchayat and reservations, if any, of the District Level Committee, can also be discussed. The

State level Standing Committee should ensure that priorities decided by the District Panchayat, as well as

direction of the Government of India, have been followed in preparing the District Rural Road Plans in

totality and the proposals of the MPs have been duly considered. The Plan, after it has been vetted by

this Committee, would be the final District Rural Roads Plan. A copy of the District Rural Roads Plan

would be sent to Government of India for record.

2.1.14.2. The District Rural Roads Plan would, henceforth, constitute the basis of preparation of project


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under the Pradhan Mantri Gram Sadak Yojana as far as that particular District is concerned. The State

Governments would be required to attach the approved Block Rural Roads Plan and the District Priority List

along with project proposals under Pradhan Mantri Gram Sadak Yojana. Only then would the proposals be

considered by the Ministry of Rural Development, Government of India.

2.2. Identification of Core Network

2.2.1. Core Network-Definition

Core Network is the Network that is essential to provided basic access to each habitation. It can also be

defined as the network of all the Rural Roads that provide basic access to all the Habitations. Basic access

is defined as the single all-weather road connectivity to each Habitation. As already indicated, the effort

under the PMGSY is to provide single all-weather road connectivity to each Habitation by way of connecting

it to another Habitation having all-weather connectivity or to an all-weather road, in such a way that there is

access to, inter alia, Market Centres.

A Core Network is defined out of the total Network of existing Roads and tracks, and this must be

maintained in good condition at all times to ensure basic access to all Habitations. Please note that the Core

Network consists of existing roads as well as the roads to be constructed to unconnected Habitations.

However, it will not consist of all the existing roads since the objective is to establish ‘basic access’ i.e., one

all-weather road connectivity to each habitation.

As explained above the Core Network has to ensure basic access (single connectivity) for each Habitation.

This has to be done in a cost-effective way by making best use of the existing road communication facilities.

For Habitations with small populations in hilly areas or in difficult terrain conditions, accessibility could be

provided by pathways and foot bridges and other low-cost interventions.

2.2.2. Why Core Network

The Core Network has the following advantages:

•

The Core Network is the network that gives one basic all-weather access to all habitations. The PMGSY does not permit any works to be taken up outside the Core Network.

It will help in optimising the requirements of fresh construction, upgrading, and maintenance for ensuring connectivity


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to all the Habitations in the country.

• It is primarily intended to mark out the essential network that is required to be maintained in good condition at all times.

• It would optimise the resource allocation in respect of the maintenance activity within the District.

• It would facilitate the States in the preparation of proposals under the Pradhan Mantri Gram Sadak Yojana.

2.2.3. Steps Involved in Establishing the Core Network

The following four major steps are involved in establishing the Core Network.

(a) Prepare Block Maps as per the district Rural Road Planning Manual (b) Identifying the Market Centres (c) Identifying the Core Network (d) Numbering of Roads and Tabulation of data

These steps are explained below:

2.2.4. Preparation of Block Maps

The preparation of the Block Maps using topographical Maps at 1:50,000 scale, has already been explained

in para 2.1.7 for preparation of the district Rural Roads Plan. Please ensure that the Block Maps show the

following:

• All Habitations upto a population of 100

• All roads viz., NH, SH, MDR and Rural Roads, constructed by different agencies including the roads under construction as well as cart tracks and paths (in hilly areas especially)

• Major rivers/ Streams

• Block Headquarters

• Gram Panchayat Headquarters

• Primary Health Centre

• Educational Facilities

• Market Centres

• Market Centres and main roads which are outside the Block boundary but can serve the Habitations in the Block can also be marked outside the Block boundary (though this may not always be necessary)

2.2.5. Identification of Market centres (Existing and Future)


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Before identifying the Core Network, one needs to identify all the Market Centres in the Block. This is

because an analysis of the transport patterns in the rural areas reveals that most of the travel is to the

Market centres. The Market centres are defined as the bigger Centres of activities for marketing, health and

education. These are generally Habitations having a large population and/or located on bigger roads or at

the confluence of roads leading from a number of Habitations. They have a higher degree of commercial

activity and would be places which have higher Health/ Education facilities. The Market Centres should be

identified using the data available from published Census records/information available from Marketing

Board/ local enquiries. The villagers should be able to go to the Market centre and come back within one

day. The maximum distance between a village and a Market centre would normally not be more than 15-20

km. In some areas, the Market centres may not be fully developed. In such cases the big villages having

potential for developing into suitable Market Centres may be identified. All the Marketing Centres should be

marked on the Block Map.

2.2.6. Identification of the Core Network

There are three types of habitations in the Block Map – those which are connected (having all-weather

roads and (ii) those which are not connected at all and (iii) those which are connected only by a fair-weather

road. In the case of connected Habitations, it is possible that there are more than one road connection. In

such a case, one road should be selected using the road index, explained in para 2.1.8.5. If, for any reason,

an alternative road is the preferred choice of the local people, that road may be chosen. But, in any case,

only one road should be selected for the Core Network, as the intention is to provide Basic access. In case

of unconnected habitations, a suitable road connection should be identified, using the Road Index where

there is multiple choice.

Thus a Core Network Plan will become available for the entire Block. It should be checked again that all the

Habitations are connected to the nearby Market Centres, either directly or through other all-weather roads.

(It is not necessary that each Habitation is directly connected to the Market centre. This is neither feasible

nor necessary).

Going by the definition of an all-weather road given in para 2.2, it is not necessary to provide a road to a

Habitation that is within 500 metres of a connected habitation or an all-weather road. All such habitations

should be treated as falling on the concerned road.

Identification of the Core Network should be done through carefully examining the suggestions/ proposals

received from elected representatives, Panchayats, and local population. These can provide very useful


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information about the missing bridges, missing links and other priority demands of the local community. The

existing road Network, location of major Market Centres, topographical features, and local travel pattern

should be kept in mind. While deciding the Core Network best use of the existing road facilities should be

aimed at. Once the Core Network is identified there will be a continuous route established between each

habitation and a Market Centre.

Having established the Core Network, it may happen that some roads connect only one Habitation or two,

while others connect more habitations. It may also be found that such roads lead inevitably to bigger roads,

which in turn lead to even bigger roads. For the purpose of convenience, the small roads can be termed as

Link Routes and bigger roads as Through Routes.

Through routes are the ones which collect traffic from several link roads or a long chain of villages and lead

it to the Marketing centres either directly or through the higher categories roads i.e., the District Roads or

the State National Highway. (It may be noted that it is possible to have Link Routes also directly leading to

such higher roads).

The through routes can be identified as roads opening up a large rural area, interconnecting two Market

Centres/ towns, linking two major roads, inter-connecting a long chain of villages. The Through Routes will

generally be long roads say more than 10 Km in length or so and serving a relatively higher population

(>5000). The Through Routes should be identified through an in-depth study of base Maps, existing road

Network, local travel pattern, location of major bridges and topographical features.

Link Routes are the roads connecting a single Habitation or a group of Habitations to Through Routes or

District Roads leading to Market Centres. Link routes generally have dead ends terminating on a Habitation.

It is possible that some of the Through Routes (sometimes even Link Routes) may cut across Block

boundaries. While integrating the Block Plans into the district Rural Rods Plan, it should be ensured that the

continuity is maintained.

2.2.7. Numbering of Core Network Roads and Tabulation of Data

Once the Core Network is identified, each road should be numbered in the manner prescribed in para 3.6

dealing with the preparation of District Rural Roads Master Plan. To distinguish Through Routes, the

number should be prefixed with T and Link Routes should be prefixed with L. For purpose of numbering, it is

always better to start with the North-East corner of the Block and come clock-wise giving progressively

higher number.

At the end of this exercise, the details of all these roads should be listed in the Proformae CN 1 to CN6.


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All these Proformae may be computerised immediately. The proformae are given in Annexure 2.7.

2.2.8. Miscellaneous

In some areas, even the Network of higher roads like Major District Roads (MDR) and State Highways (SH)

may not be fully developed. Many of the major bridges may be found missing. The investment in Rural

Roads will not show expected results unless these major roads and bridges are constructed. The

requirements of such roads and bridges may be identified even though these are not to be included under

the Pradhan Mantri Gram Sadak Yojana. Such information should be provided to PWD to incorporate these

in their plans.

2.2.9. Approval of Core Network

The procedure to be adopted for the approval of the Core Network shall be the same as that for Master Plan

(para 2.1).

2.2.10. Implementing the Master Core Network Plan

2.2.10.1. Comprehensive New Connectivity Priority List (CNCPL)

The Core Network is the only basis for selection of works under PMGSY. Once the Core Network is ready,

the States are required to prepare Comprehensive New Connectivity Priority List (CNCPL), on a Block and

District level, of all proposed road links under PMGSY (with road code, names of habitations being

connected with habitations code, population served and length), grouping them in the following Order of

Priority :

Priority No. Population Size Category

I 1000+ New Connectivity

II 500-999 -do-

III 250-499 New Connectivity [where eligible in respect of Hill States (North-East, Sikkim, Himachal Pradesh, Jammu & Kashmir, Uttaranchal) and the Desert Areas (as identified in the Desert Development Programme) as well as the Tribal (Schedule V) area].


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All States are required to prepare a Comprehensive New Connectivity Priority List (CNCPL), which shall form the basis of all proposals for PMGSY 2004-05 and beyond.

The list will be updated (by removing roads taken up under PMGSY or other programmes) each year on 31st March and copy shall be sent along with the Annual Proposals.

The proposals for PMGSY 2004-05 onwards will be considered only if

the Comprehensive New Connectivity Priority List (CNCPL) is

furnished.

2.2.10.2. Prioritisation of New Connectivity Road Works in Annual Proposals

2.2.10.2.1. The issue of criteria for selection of roads to be taken up has figured several times in

Parliament and its Committees and it is apparent that the District Panchayats in the States need to adopt a

uniform and objective methodology in a transparent manner, to also enable full consultation with lower level

Panchayati institutions and elected representatives.

2.2.10.2.2. Since Core Network is now the basis for making Annual Proposals, and as given in Para

2.2.10.1 above, a Block/ District-wise Comprehensive New Connectivity Priority List (CNCP List) has been

prescribed, all consultations for new connectivity will be based on such lists, and Panchayati Raj Institutions

and Elected representatives may be furnished a copy of the relevant uptodate CNCP List in order for them

to indicate their choice of road works. Needless to add, where road works of a higher order of priority still

remain to be taken up, road works of a lower order of priority will not be taken up in the same District except

if it is not possible to execute the road work for reasons of non-availability of land etc. While finalising the

District proposal, the District Panchayat shall record reason in each such case.

2.2.10.2.3. Upgradation works will only be proposed in a district if no new connectivity remains to be taken

up. In such a case, upgradation of through roads will be taken up first followed by upgradation of link roads.

2.2.10.3. Upgradation Works

All the works selected for upgradation should satisfy the following requirements :

• upgradation works are to be undertaken only after new connectivity of all eligible habitations have been taken up in the district.

• all roads selected for upgradation constitute a part of the Master Core Network


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• all roads selected for upgradation, in the first place belong to the ‘Fair Weather’ category, irrespective of the type of surfacing keeping in view that the main objective of the PMGSY is to ensure one basic all-weather road access to each habitation of 500+ population.

• the concerned State/ UT furnishes the Present Condition Index (PCI) of each road in the Master Core Network to be considered for upgradation and also full details of missing CD works, if any.

• the upgradation should be considered only for FWRs with missing CD works and/ or PCI < 2.0; the lower the PCI value, higher would be the assigned priority

• the maintenance of all rural roads with PCI > 2.0 will be the responsibility of the State/ UT. Any lapse of the State/ UT on this count should adversely affect the release of the PMGSY funds from the GoI. The computerised data base with complete inventory of each rural road should be updated with data from the condition surveys conducted atleast once a year, preferably twice a year.

2.2.10.4. Consideration of Proposals made by Members of Parliament

2.2.10.4.1. Proposals of Members of Parliament shall be given full consideration. The Comprehensive

New-Connectivity Priority List (CNCP List) identified to connect unconnected habitations (along with names

of habitations and population served and length) should be sent to the Members of Parliament, to facilitate

the Members of Parliament making their suggestions. It will be incumbent upon the District Panchayat to

ensure that, while framing the Annual proposals, full consideration is given to the proposals received from

the Members of Parliament, within the frameworks of the Guidelines and the Order of Priority mentioned in

Para 2.2.10.1.

2.2.10.4.2. While Lok Sabha Members will be consulted in respect of their constituencies, Rajya Sabha

Members will be consulted in respect of that District of the State they represent for which they have been

nominated as Vice-Chairman of the District Vigilance & Monitoring Committee of the Ministry of Rural

Development.

2.2.10.4.3. PIUs will forward details of proposals made by Members of Parliament on Proforma MPI and

MPII along with the proposals approved by the District Panchayat for consideration of the State level

Standing Committee, and the Committee should ensure that proposals of Members of Parliament have

been given full considerations. Accordingly, State Governments are requested to issue suitable instructions

keeping in view the following :

• When the process of formulating the annual proposals is initiated, Members of Parliament should be requested to send their proposals (on the relevant Block/ district CNCP List sent to them) so as to reach the District Panchayat concerned within a given time frame. It is suggested


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that at least 15 clear days may be given for the purpose.

• The proposals received from the Members of Parliament by the stipulated date should be given the full consideration in the District Panchayat which should record the reason in each case of non-inclusion and the Members of Parliament should be informed of the inclusion/ non-inclusion of their proposals along with the reasons in each case in the event of non-inclusion. It would be preferable if the communication is issued from the Nodal Department at a senior level.

• In order to ensure that the prioritisation has some reference to the funding available, the size of proposals expected may also be indicated to the Members of Parliament while forwarding them the CNCP List. Para 3.1 gives the basis of District-wise allocation of fund. All States should allocate the amounts accordingly and also further distribute it Block-wise to enable lower level Panchayati Institutions and elected representative to indicate their choice with the requisite geographical spread. In view of the provisions of para 3.2.1, it is expected that such proposals of Members of Parliament which adhere to the order of priority given in Para 3.2.3 and 2.2.10.1 would be invariably accepted subject to consideration of equitable allocation of funds as per Para 3.1.

• The State Government should also arrange to supply to each Member of Parliament, an annual list of road works taken up under the Programme for the period ending 31st March. State Governments have already been advised to print such lists annually, in English and local language. Copies of these may be conveniently supplied to elected representatives and Panchayati Institution and 100 copies of the English version and 10 copies in the local language version should be sent to NRRDA by 31st May of each year.

• The Programme Implementation Units (PIU) at the District Level should facilitate Members of Parliament in knowing the status of implementation of the road works in their areas in case they visit their District. The website (pmgsy.org) may also be kept updated for this purpose. In case local connectivity is a problem, NIC facilities at District headquarters should be used.

• The States annual proposals for 2004-05 and beyond will be considered only if the above procedures have been put in place.


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CHAPTER 3

Annual Proposals and Their Clearances

3.1. Funding and Allocation

3.1.1. Once the Core Network is prepared, it is possible to estimate the length of roads for New

Connectivity as well as Upgradation for every District. States may, each year, distribute the State’s

Allocation among the Districts giving 80% on the basis of road length required for providing

connectivity to Unconnected Habitations and 20% on the basis of road length requiring

Upgradation under the PMGSY. The District-wise allocation of funds would also be communicated

to the Ministry/ NRRDA every year by the State Government.

3.1.2.

District-wise distribution of PMGSY funds shall be based giving 80% on the basis of road length needed for giving connectivity to unconnected habitations and 20% on the basis of road length requiring upgradation under PMGSY.

In making the district-wise allocation, the number of

Habitations taken up under the PMGSY or any other

Programme would be excluded from the total number of

Unconnected Habitations (even if the road works are still

under execution). The figures of connected as well as

Unconnected Habitations in any District would keep on

changing every year till such time as well as Unconnected

Habitations (of the stipulated population size) have been

covered in the District.

3.1.3. To ensure an equitable distribution with due primacy to new connectivity, the following

would be a suitable methodology:


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(i) 20% of the State’s allocation may be divided in proportion to the length of roads requiring upgradation among districts which have achieved full connectivity, subject to a maximum for the district equal to the simple district-wise average allocation. (ii) the remaining 80% (and any allocation left over from (i) above) can be allocated among districts which have not achieved full connectivity.

The following example will make the allocation procedure clear:

Consider a State with 20 districts, having an annual allocation of Rs. 100 crores. Five of the

districts are having full connectivity. The length of roads requiring upgradation in each of these five

districts (Col 2) and the number of unconnected villages in each of the remaining 15 districts are

indicated in Table 3.1 (Col 6).

Step 1 :

The total length of roads requiring upgradation :

Fully connected villages (Villages 1-5) = 400 Km

Unconnected villages (Villages 6-20) = 1600 Km

2000 Km

The allocation for upgradation for the State : 20% of Rs. 100 crores = Rs. 20 crores.

The allocation for upgradation in each of the villages 1-5 is in proportion to the length of roads needing upgradation, and is calculated in Col (3).

Step 2 :

The maximum eligible allocation for upgradation in each of the villages 1-5.

=

= = Rs. 400 lakhs, entered in Col (4)

Step :

The actual allocation for each of the 5 villages (1-5) is the higher of values in Col (3) and Col (4) and is entered in Col (5).

This totals to Rs. 1700 lakhs, as against an allocation of Rs. 2000 lakhs admissible. This shortfall (Rs. 300 lakhs) is added to the allocation eligible for new connectivity in the


CHAPTER 1

remaining villages.

Thus, allocation of new connectivity in villages

6-20 = Rs. 300 lakhs + 80% of Rs. 10,000 lakhs

= Rs. 300+Rs. 8000 lakhs

= Rs. 8300 lakhs

Step 4 :

Distribute the amount of Rs. 8300 lakhs among the villages 6-20 in proportion to the number of villages unconnected. This is done in Co (7).

Step 5 :

Add Cols (5) and Col (7) to give the allocation for each district (Co 8).

It may be noted that the 20% for upgradation is a maximum figure. Generally, to ensure equitable distribution in case only a few districts have achieved full connectivity, the manner of allocation suggested here should be followed.

3.1.4. When all the unconnected habitations are connected in a State, the funds for upgradation

shall be distributed in proportion to the length of roads needing upgradation in each district, as per

detailed guidelines to be framed by NRRDA.

3.2. Proposals

3.2.1. The list of road works to be taken up under the PMGSY will be finalised each year by the

District Panchayat in accordance with the Allocation of Funds communicated to the district by the

State Government (see para 3.1). The District Panchayat shall finalise the list through a

consultative process involving lower level Panchayati institutions and elected representatives (see

para 3.2.5 below). It must be ensured that the proposed road works are part of the Core Network

and that New Connectivity is given primacy.

3.2.2. It will be the responsibility of the State Government/ District Panchayat to oversee that

lands are available for talking up the proposed road works. A certificate that Land is available must

accompany the proposal for each road work. It must be noted that the PMGSY does not provide

funds for Land Acquisition. However, the State Governments will draw up policies so that the

process of making land available for the road works sub-serves the common good and is also just

and equitable.


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In one State (West Bengal), Road Users Committees have been set up at each road level. These

Committees not only monitor the progress of work and act as watch-dogs, but also assist in making

land available for the project by using their persuasive ability on villagers whose lands fall on the

alignment. It is suggested that all States may adopt this model as it will bring about grater

participation of the community.

3.2.3. The PMGSY guidelines state that :

• Roads works to be taken up must form part of the Core Network;

• Precedence is to be given to new connectivity, with priority for connecting habitations of higher population;

• Annual proposals are to be finalised at District level by the District Panchayat through a consultative process involving lower level Panchayati institutions and elected representatives;

• Members of Parliament are to be facilitated in making their suggestions and the District Panchayat is to give consideration to proposals received from them.

Table 3.1

District No.

(Col 1)

Road Length Requiring

Upgradation (Km

(Col 2)

Allocation for Upgradation on proportionate

basis (Rs. Lakhs) (Co 3)

Maximum Eligibility

(Rs. Lakhs) (Co 4)

Allocation Permissible (Rs. Lakhs)

for Upgradation

(Co 5)

Number of Villages

Unconnected (Col 6)

Allocation for New

Connectivity (RS. Lakhs) (Co

7)

Final Allocation

(RS. Lakhs) (Col 8)

Fully Connected Districts

1 60

= 300

= 400

300 –– –– 300

2 100

= 600

= 400

400 –– –– 400


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3 100

= 500

= 400

400 –– –– 400

4 40

= 200

= 400

200 –– –– 200

5 100

= 700

= 400

400 –– –– 400

Total 400

2300

2000

1700 –– –– 1700

Districts Not Having Full Connection 6 140 –– –– –– 40

= 443

443

7 60 –– –– –– 60

= 664

664

8 130 –– –– –– 30

= 332

332

9 70 –– –– –– 20

= 221

221


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10 120 –– –– –– 70

= 775

775

11 80 –– –– –– 80

= 885

885

Contd on next page

12 200 –– –– –– 60

= 664

664

13 200 –– –– –– 40

= 443

443

14 50 –– –– –– 50

= 553

553

15 150 –– –– –– 50

= 553

553

16 40 –– –– –– 40

= 443

443


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17 160 –– –– –– 60

= 664

664

18 100 –– –– –– 70

= 775

775

19 80 –– –– –– 30

= 332

332

20 120 –– –– –– 50

= 553

553

Total 1600

–– –– –– 750 8300

8300

Total for States 2000

750 Total Allocation 10,000

Since the Core Network is ready, the States shall prepare the Comprehensive New Connectivity

Priority List (CNCPL) and group them under Priority I, II, and III as described in para 2.2.10.1. The

proposals for new connectivity and upgradation and consideration of proposals made by Members

of Parliament shall be made as detailed in paras 2.2.10.2, 2.2.10.3 and 2.2.10.4.

3.3. State Level Agencies

3.3.1. Each State Government/ UT Administration would identify one or two suitable Agencies

having a presence in all the districts and with established competence in executing time-bound


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road construction work), to be designated as Executing Agencies. These could be the Public

Works Department/ Rural Engineering Services/ Organisation/ Rural Works Department/ Zilla

Parishad/ Panchayati Raj Engineering Department etc who have been in existence for a large

number of years and have the necessary experience, expertise and manpower. No Agency/

Consultant shall be created by the States for implementation of the programmes. In States where

more than one Executing Agency has been identified by the State Government, the distribution of

work would be done with the district as a unit. In other words, each District will be entrusted to only

one Executing Agency. The Executing Agency will have a Programme Implementation Unit (PIU) in

the District, which should have an officer of the rank of Executive Engineer as its head.

3.3.2.

Each State shall identify a State Level Autonomous Agency for implementing the PMGSY. It shall have a Chief Executive with several District Project Implementation Units (DPIUs) .

Every State Government/ UT Administration shall nominate

a Department as the Nodal Department, who will have the

overall responsibility for implementation of the PMGSY in

the State. This would be the Administrative Department

responsible for the Executing Agency entrusted with the

execution of the road works. In the event of there being two

Executing Agencies, the department responsible for the

major of the two Agencies shall be the Nodal Department.

All communication between the Ministry of Rural

development and the State Government would be with and

through the Nodal Department/ State-level Agency.

3.3.3. The Nodal department will identify a State-level autonomous Agency (Society etc), with a


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distinct legal status, under its control for receiving the funds from the Ministry of Rural

Development, as indicated in Chapter 12 below. If there is no such State-level Agency, the Nodal

Department will take steps to register an Agency under the Societies Registration Act, (there

should not be more than one Agency), so as to be able to receive the funds. The Agency will be

headed by the Minister or the Chief Secretary and the Secretary in charge of the Nodal

Department or a senior officer will be the Chief Executive. All the proposals will be vetted by the

Agency before they are put up before the State-level Standing Committee and are sent to the

NRRDA for clearance by the Ministry of Rural Development.

A suggested set-up for the Agency is as under:

State Level Autonomous Agency Chairman/President (Minister/

Chief Secretary)


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The functions of the Agency will be :

1. Rural Road Planning 2. Claim and receive funds from MORD for PMGSY 3. Allocate funds to districts 4. Prepare and submit proposals every year 5. Works Management 6. Contract Management 7. Financial Management

(i) Maintain account in Public Sector Bank (ii) Ensure that the accounts are audited

3.3.4. The PMGSY programme has now been in operation for some time now and reviews of the

progress, based on interaction with the State Executing Agencies reveal that the creation of a

streamlined organisation with experienced staff dedicated to PMGSY is crucial to timely completion

of quality road works. Several States have effectively combined the roles of the Executing Agency


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and the State level agency into a singe State Rural Roads Agency, with PIUs in the Districts and

engineering staff with road construction experience taken on deputation.

3.3.5. Since such a streamlined organisational set up will involve some additional operating

expenses, it has been decided to meet a substantial portion of this additionality, by providing ‘office

expenses’ @ Rs. 35,000/- pm per dedicated PIU and Rs. 10,000/- pm for travel expenses of the

PIU personnel. The funding will be available after the Executing/ Autonomous Agency provides

necessary details of the following :

(a) the status of the dedicated State level autonomous Agency and its organisational structure

(b) the structure of dedicated PIUs and their linkages with the Executing/ State level Agency

3.3.6. It may be noted that the funds will be made available only if the organisational structure to

manage the programme is satisfactorily streamlined and dedicated to PMGSY with a clear line of

command and control and adequate delegation of powers and functions and it is apparent that

programme execution will not be impeded by a multiplicity of levels, agencies or units.

3.3.7. Funds will be released quarterly. State Governments who have in place the necessary

organisational structure in place before 30th June, 2003 will be eligible for the funds for the quarter

April-June 2003. In order to claim the first instalment, the State Nodal Department needs to send

details of the organisational arrangements put in place pursuant to these clarifications.

3.3.8. Each State Government shall set up a State-level Standing Committee (preferably headed

by the Chief Secretary) to vet the Core Networks and the Project proposals to ensure that they

have been formulated in accordance with the Guidelines. The State-level Standing Committee

would also be responsible for close and effective monitoring of the Programme, and oversee the

timely and proper execution of road works.

3.4. Preparation of Project Proposals and Their Clearance in the State

3.4.1. After approval by the District Panchayat (refer para 3.2.1 above), the proposals would be

forwarded through the district PIU to the State-level Agency (refer para 3.3.3 above). The PIU will

at that time prepare the details of proposals forwarded by the Members of Parliament, and action


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taken thereon, in Proformae MP-I and MP-II and send it along with the proposals.

3.4.2. The State-level Agency shall vet the proposals to ensure that they are in accordance with

the Guidelines and shall place them before the State-level Standing committee. The size of State

project proposals as well as the time when they would be forwarded to the NRRDA will be as

specified by the Ministry/ NRRDA each year. The State Level Standing Committee would also

scrutinise the proposals to see that they are in accordance with the Guidelines and that the

proposals of the Members of Parliament have been given full consideration.

3.4.3. After scrutiny by the State Level Standing Committee, the Programme Implementation

Units (PIUs) will prepare the Detailed Project Report (DPR) for each proposed road work. The

preparation of DPR requires collection and analysis of data required for the design of Pavement

and Cross-Drainage works such as Inventory and Engineering surveys, Soil Investigations,

Hydraulic data etc. The cost of preparation of DPR @ not more than Rs. 10000 per kilometre may

be included in the Project Cost. Similarly, a fixed amount for not more than Rs. 10000 per kilometre

(on actual basis) may be included in the Project Cost as cost for fixation of Sign Boards, Road

Stones and other Road Furniture as per IRC specifications. Rupees 5000/- per function for

foundation/ inauguration ceremonies may also be included. Attached to the DPR will be a separate

Benchmark indicator report giving status of key indicators of education, health, incomes etc of each

of the Habitations proposed to be connected (Data from Habitation Data in Format-I developed for

the district Rural Roads Plans/ Census may be used).

3.4.4. The PIU will follow the following Guidelines in preparing the Detailed Project reports:

(i) The Rural Roads constructed under the Pradhan Mantri Gram Sadak Yojana must meet the technical specifications and geometric design standards given in the Rural Roads Manual of the IRC (Publication IRC : SP 20 : 2002). Most of the new connectivity is likely to carry traffic of low intensity. It may be noted that the Rural Roads Manual allows for a carriageway of 3.0m where traffic intensity is less than 100 motorised vehicles per day and where the traffic is not likely to increase due to situation, like, dead end, low Habitation and difficult terrain condition. To ensure economy in respect of link roads, the carriageway width may be restricted to 3.0 m in all such cases with corresponding reduction in roadway width etc as per the Rural


CHAPTER 1

Roads Manual.

(ii) The Rural Roads under the Pradhan Mantri Gram Sadak Yojana will be surface roads, and by and large, sealed surface roads, i.e., roads with a bituminous or cement concrete surfacing. The choice of surface would be determined, inter alia, by factors like traffic density, soil type and rainfall, following the technical specifications laid down in the Rural Roads Manual (IRC : SP 20 : 2002).

(iii) Where the road work is passing through a Habitation, the road in the Built-up area and for 50 metres on either side may be so designed that it is not damaged by water. For his the roads will be designed and executed as a Cement Road or with Paved Stones, besides providing side drains. Appropriate side drains will also be provided, so that improper drainage does not damage the road.

(iv) Where Modified Bitumen is to be used as recommended in the Rural Roads Manual, it is desirable if such a product is obtained from the refineries. Its use may be regulated by Table 4.13 of IRC : SP 20-2003.

(v) The Government attaches a high priority for the utilisation of waste material like flyash. Every effort should be made to use it in soil stabilisation, concrete roads and in road embankment. It shall be mandatory to investigate the possibility of use of fly-ash within a radius of 100 Km from a Thermal Plant, keeping in view the comparative economics of a conventional design and the alternative of using fly-ash.

(vi) The Rural Roads constructed under PMGSY must have proper drainage facilities as regards the cross-drainage works under the programme, normally only minor bridges i.e, those having a length of upto 15 metre would be taken up. Longer bridges would also be admissible under the Programme but only after inspection by an office of the rank of Superintending Engineer or above in case of bridges between 15-25 metres and by a joint team of the State Technical Agency and senior Engineers, who shall confirm the need as well as design of the proposed structure. Due consideration needs to be paid to the cost and benefits accruing from the bridge similarly, in case of the Hill States, the length of CD works could be longer but the cost of one CD work should not normally exceed Rs. 25 lakh. The bridges may be so designed as to serve, where feasible, as Bridge-cum-Bandharas. However, in such cases, prior commitment of the beneficiary group/ village Panchayat regarding its


CHAPTER 1

operation and maintenance should be obtained.

3.5. Technical Scrutiny of Project Proposals

3.5.1. Ministry of Rural Development has identified in consultation with each State Government,

reputed Technical Institutions to scrutinise the project proposals prepared by the State

Governments, provide requisite technical support to the State Governments, and undertake Quality

Control tests upon specific request. These are being referred to as the State Technical Agencies

(STA). The coordination of activities of the STAs would be performed by the NRRDA, who may add

to or delete from the list of institutions, as well as to entrust specific tasks from time to time. The

Ministry of Rural Development/ NRRDA may from time to time identify additional qualified

Technical Agencies to provide these services to the state Governments and to perform such other

functions as may be necessary in the interest of the Scheme.

3.5.2. The PIU will forward the proposals alongwith the Detailed Project Reports to the Technical

Agencies for scrutiny of the design and estimates. The Proformae F-1 to F-8 will form part of the

DPR (Annexure 6.1). These will be forwarded at the level of the Superintending Engineer or the

supervising officer of the PIU, before they are sent to the State Technical Agencies. A summary of

the road works will be prepared in Proformae ‘B’, circulated by the Ministry/ NRRDA (Annexure

6.2).

3.5.3. The DPRs are to be scrutinised by the Technical

Agency in the light of the PMGSY Guidelines, IRC

Specifications as contained in the Rural Roads Manual/

IRC SP 20 : 2002 and the applicable Schedule of Rates. In

doing so, it shall be ensured that no lead charges would

be payable of transportation of soil (except in case of

Black Cotton Soil/ Sodic Soil). The Technical Agency will

countersign the Proformae, whereupon the PIU will

forward the same to the State-level Agency. Chapter 6

deals in detail the subject of scrutiny of DPRs.

3.5.4.


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The PIUs shall prepare the Detailed Project Reports strictly in accordance with PMGSY guidelines. They shall get them scrutinised by qualified Technical Agencies. The State Level Agency shall consolidate such proposals and send to NRRDA shall get the proposals cleared by the Empowered Committee.

The State-level Agency will consolidate the proposals from each PIU, after verifying that they have

been duly scrutinised by the respective STAs. They will then prepare the State Abstract and send

all the Project proposals to the NRRDA alongwith the Proformae MP-I and MP-II of each District

(Annexure 3.1) as well as the proformae.

3.5.5. The NRRDA will thereupon scrutinise the proposals from the State Level Agency to ensure

that the proposals have been made duly keeping in view the Programme Guidelines and that they

have been duly verified by the STAs. The proposals for each State would then be put up before the

empowered committee for consideration.

3.6. Empowered Committee

3.6.1. At the Central level, the Project proposals received from the State Governments would be

considered by an Empowered Committee, to be chaired by Secretary, Department of Rural

Development. The representatives of the State Government, whose projects are being considered

by the Empowered Committee, would be invited to attend the Meetings. The Recommendations of

the Empowered Committee would, thereafter, be submitted to the Minister of Rural Development

for clearance.

3.6.2. For this purpose, the Ministry will communicate the schedule of meetings of the

Empowered Committee to the State Governments, at least 15 days in advance. The State Nodal

Department shall send to NRRDA the following information at least 5 days in advance of the

meeting giving details of :


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1. Status of Core Network 2. Certificate for Maintenance by State Government 3. Status of Connectivity (District-wise) 4. Status of ongoing PMGSY projects 5. Status Quality Control Monitoring 6. Status of OMMS 7. Details of proposals for the current year 8. Cost of projects

Annexure 3.2 gives the prescribed formats.

The NRRDA shall prepare a Technical Brief for the Empowered Committee on the Proposals and

on the Quality of on-going works and shall submit the proposals of the State for scrutiny in a Pre-

Empowered Committee Meeting chaired by the Director General, NRRDA and attended by

representatives of the State Government.

3.6.3. The Empowered Committee may recommend clearance of the proposals in accordance

with the requirements of the PMGSY guidelines.

The Ministry will communicate the clearance of the Proposals to the State Government. It may,

however, be noted that clearance by the Ministry does not imply Administrative or Technical

sanction of the proposals. The well established procedures of the Executing Agency/ies in this

regard would continue to be followed.

3.6.4. Once approved, the alignment of the road should not be changed without obtaining the

concurrence of the District Panchayat, the State Technical Agency and the State level Standing

Committee.

3.6.5. Variation in Proposals

If any variation (new proposals, deletion of approved roads and material deviation beyond 5

percent) are envisaged after approval from the Empowered Committee, fresh proposals shall be

prepared in the same manner as earlier prescribed and the approval of the Empowered Committee

shall be obtained.

3.7. Schedule of Activities

The NRRDA has laid down a schedule for the various activities involved. Table 6.1 (in Chapter 6)


CHAPTER 1

gives the schedule.


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CHAPTER 4

design

4.1. Route Selection And Alignment

The Master Plan gives guidance on the broad network of rural roads required to connect all eligible

rural habitations. This will have to be translated on to the ground in the form of properly aligned

road links.

The IRC: SP-2002, Rural Roads Manual, gives detailed guidance on selection of the alignment.

These should be followed.

The following supplementary points also deserve notice for the PMGSY:

1. In order to minimise/ avoid land acquisition, the alignment should follow existing cart tracks and footpaths to the maximum extent possible.

2. According to the definition of connectivity under the PMGSY, a habitation is deemed to be connected if the road is within 500m. Thus, it is not necessary to take the road to or through the habitation. It can as well skirt round the habitation at a safe distance of 500m.

3. Special consideration for hilly areas.

Hilly areas have certain special characteristics, and these should be taken into consideration while planning rural roads in these areas. First is that in the hills, the villages are generally dispersed, located at different elevations and thinly populated with the result that habitations forming a cluster within 1 km distance and making up population of 1,000 or more are very few. Second is that because of the difficult topography and the high cost involved in construction, it may not be feasible to connect isolated habitations with motorable roads. At the same time, these areas have large potential for horticulture production and tourism, and roads are the only means of communication. In light of these special characteristics, planning of rural roads in hilly areas should keep in view the following considerations:

(i) Habitations located within 1 km radius having difference of elevation not more than 100m should be considered as a cluster of villages and one suitable


CHAPTER 1

village of the cluster should be connected by motorable road.

(ii) All isolated habitations for which it is not possible to provide a motorable road connection should be brought within 3 km radius and altitude difference of 300m from a motorable road. This can be effected by extending the road system upto such points as is economically feasible. Beyond these points up to the isolated villages, footpaths, mule tracks etc could be provided.

4. It is always helpful to consider some 2 or 3 possible route alignments and evaluate each alternative for the construction costs to be incurred and related benefits accrued, before finalising an alignment. By adopting such an approach, many unfavourable features can be avoided like long length covered by problematic soils (e.g., BC soils), two many cross-drainage works involved, high cost bridges, landslide susceptible slopes on hill roads etc. Similarly, the ease with which the desired geometric design standards can be attained may vary from one alternative to another alternative.

4.2. Geometric Design Standards

4.2.1. The IRC Rural Roads Manual gives the geometric design standards to be followed. It is

common experience in many rural areas of the country that it is not always possible to strictly

conform to all the desired geometric standards. The designer is often faced with the vexing

question as to the extent to which he can compromise before arriving at the absolutely minimum

acceptable geometric design standards. In this context, a considerable amount of R&D work has

been carried out in the USA on the minimum geometric design standards considered acceptable

for the very low volume rural roads (defined as those roads having ADT ≤ 400 vehicles per day),

their design philosophy having been based on a risk assessment analysis. It must, however, be

clarified that while the IRC standards on geometric design contained in the Rural Roads Manual

(IRC SP 20) should be adopted, the AASHTO design standards given in Tables 4.1 to 4.6 may be

looked upon as absolute minimum standards below which, it can prove to be hazardous to the road

users.

4.2.2. Roadway Width


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The geometric design standards given in IRC Rural Roads Manual shall be followed. In case of site restrictions, AASHTO recommendations may be adopted as the absolute minimum.

The IRC Rural Roads Manual recommends a roadway width of 7.5 m in plain and rolling terrain and 6.0m in mountainous and steep terrain. The footnote under Table 2.5 of the IRC Manual mentions that, where the traffic intensity is less than 100 veh per day, and where the traffic is not likely to increase due to interior dead end, the roadway width may be reduced to 6.0m in case of plain and rolling terrain.

The AASHTO recommendations are given in Annexure 4.1. These may be considered as the

absolute minimum below which it can prove to be hazardous to the road user.

4.2.3. Carriageway Width

The carriageway width recommended in the IRC Rural Roads Manual is 3.75m. But the footnote

below Table 2.6 indicates that the carriageway width may be restricted to 3.0m, where the traffic

intensity is less than 100 veh per day, and where the traffic is not likely to increase due to interior

dead end, low habitation and difficult terrain conditions. Most of the village link roads fall under this

category, and the designer should take advantage of this provision and restrict the carriageway

width for very low volume links to 3.0m.

4.2.4. Radius of Horizontal Curves

Table 2.16 of IRC Manual gives the minimum radii of horizontal curves. These are based on a

maximum super-elevation rate of 7 percent for plain and rolling terrain and mountainous areas

(snow bound); and 10 per cent for mountainous areas not snow bound. The friction factor is

constant at 0.15.

AASHTO permits super-elevation rates upto 12 percent and gives friction factors that vary with

speed. Using these, the minimum radii have been calculated. These are reproduced in Tables 4.2

and 4.3. They may be used for PMGSY at critical locations.

Table 4.2

Maximum Side Friction Factor and Minimum Radius (New Construction,


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ADT < 250 veh/day, Limited Heavy Vehicle Traffic) (Ref. 6)

Design Speed (Km/h)

Reduced Design Speed (Km/h)

Maximum Design Side Friction Factor, fmax

Minimum Radius (m), Rmin Maximum Superelevation Rate (%), emax

4 6 8 10 1220 20 0.180 15 15 10 10 1030 25 0.170 25 20 20 20 2040 30 0.170 35 30 30 25 2550 35 0.170 45 40 40 35 3560 45 0.165 80 70 65 60 5570 50 0.160 100 90 80 75 7080 60 0.150 150 135 125 115 10590 70 0.140 215 195 175 160 150

100 80 0.140 280 250 230 210 195

Table 4.3

Maximum Side Friction Factor and Minimum Radius (New Construction,

ADT from 250 to 400 veh/day, Limited Heavy Vehicle Traffic) (Ref. 6)

Design Speed (Km/h)



Minimum Radius (m), Rmin

Maximum Superelevation Rate (%), emax

4 6 8 10 12

20 20 0.180 15 15 10 10 1030 25 0.170 25 20 20 20 2040 30 0.170 35 30 30 25 2550 40 0.170 60 55 50 45 4560 50 0.160 100 90 80 75 7070 60 0.150 150 135 125 115 10580 65 0.145 180 160 150 135 12590 75 0.140 245 220 200 185 170

100 85 0.135 325 290 265 240 225


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4.2.5. Sight Distance

AASHTO guidelines for sight distances are given in Tables 4.4, 4.5 and 4.6.

Table 4.4

Minimum Sight distance for Specified Design Traffic

Volumes and Location Types (Ref. 6)

Design Speed (Km/h)

Minimum sight distance (m) for specified design traffic volumes and location types

0-100 veh/day 100-250 veh/day 250-400 veh/day

All Locations “Lower Risk” Locations 1

“Higher Risk” Locations 2 All Locations

20 15 15 15 1530 25 25 30 3040 35 35 40 4050 45 45 55 5560 60 60 70 7070 75 75 90 9080 95 95 110 11090 120 120 130 130

100 140 140 155 1551 away from intersections, narrow bridges, railroad-highway grade crossings, sharp curves, and steep downgrades 2 near intersections, narrow bridges, or railroad-highway grade crossings, or in advance of sharp curves or steep downgrades.

Table 4.5

Minimum Rate of Vertical Curvature to Provide Design Stopping Distance on

Crest Vertical Curves (Summit Curves) for New Construction of

Very Low Volume Roads (ADT ≤ 400) (Ref. 6)


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Design Speed (Km/h)

All locations for 0-100 vpd and “lower risk” locations for 100-250 vpd1

“Higher risk” locations for 100-250 vpd and al locations for 250-400 vpd2

Stopping Sight Distance (m)

Rate of Vertical Curvature, K3 Stopping Sight

Distance (m)

Rate of Vertical Curvature, K3

Calculated Design Calculated Design

20 15 0.3 0.5 15 0.3 0.5

30 25 0.9 1 30 1.4 2

40 35 1.9 2 40 2.4 4

50 45 3.1 4 55 4.6 5

60 60 5.5 6 70 7.4 8

70 75 8.5 9 90 12.3 13

80 95 13.7 14 110 18.4 19

90 120 21.9 22 130 25.7 26

100 140 29.8 30 155 36.5 37

1 “lower risk” locations are locations away from intersections, narrow bridges, railroad-highway grade crossings, sharp curves, and steep grades.2 “higher risk” locations are locations near intersections, narrow bridges, railroad-highway grade crossings, or in advance of sharp curves or steep grades.3 the rate of vertical curvature, K, is the length of curve (L) per percent algebraic difference in intersecting grades (A); i.e., K = L/A.

Table 4.6

Sight Distance Guidelines for New Construction of

Intersections with No Traffic Control (Ref. 6)

Design Speed (Km/hr)

Sight Distance (m)

20 20

30 25

40 30

50 40

60 50


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70 65

80 80

90 95

100 120

4.3. topographical and RElated Ground surveys

The recommended ground survey technique comprises of three sequential stages viz (i)

Reconnaissance (ii) Preliminary and (iii) Final Location Surveys.

Reconnaissance starts with a field inspection by walking, riding on ponies (in hills) or driving in

jeeps. All information of value, either in design, construction, maintenance or operation of the

facility should be collected, which may include, interalia, the following :

• Details of route vis-à-vis topography of the area – plain, rolling or hilly

• Requirements of cross-drainage works – type, number and length

• Gradients that are feasible, specifying the extent of deviations needed

• Curves and hair-pin bends etc

• Existing means of communication – mule tracks, jeep tracks, cart tracks etc

• Constraints on account of built-up areas, monuments and other structures

• Road length passing through different terrains, areas subjected to inundation and flooding, areas of poor drainage conditions, unstable slopes etc

• Climatic conditions – temperature, rainfall, water table and its fluctuations etc

• Facilities/ Resources available e.g., availability of local labour, contractors etc

• Access points indicating possibility of induction of equipment

• Period required for construction

• Villages, hamlets and market centres connected

• Economic factors – population served, agricultural and economic potential of the area

• Crossing with railway lines and other existing roads

• Position of ancient monuments, burial grounds, cremation grounds, religious structures, hospitals and schools etc.


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• Ecology or environmental factors.

Only simple instruments like Compass, Abney level, Altimeter, Clinometer, Ghat tracer etc are

used in the Reconnaissance survey.

Preliminary survey is a relatively large-scale investigation of the alternative(s) thrown up as a result

of the Reconnaissance survey. The survey consists in establishing a base-line traverse. For hill

roads, it may be necessary to cut a trace of 1.0-1.2m wide to enable the transverse survey to be

carried out. A theodolite or compass is used for traversing and levels are taken along the traverse

and across it. The distances are measured continuously along the traverse line with a metallic

tape. Bench marks should be established at intervals of 250 m to 500 m and the level should be

connected to the GTS datum. Physical features such as buildings, trees, burial grounds,

monuments, railway lines, canals, drainage channels etc should be located by means of offsets.

The width to be covered for such detailing should be about the land width proposed to be acquired.

Information on highest flood level, rainfall intensity, catchment areas of streams etc should be

collected. The survey enables the preparation of a map including the plan and longitudinal section.

The scales generally recommended are :

• Built-up areas and hilly terrain : 1:1000 for horizontal scale 1: 100 for vertical scale

• Plain and rolling terrain : 1:2500 for horizontal scale 1:250 for vertical scale

It is desirable to mark the contour intervals at an interval of 1 to 3m. The map should show all the

physical features surveyed.

The purpose of the final location survey is to fix the centreline of the selected alignment in the field

and to collect additional data for the preparation of the drawings. The centreline is translated on the

ground by continuous transverse survey and pegging the same. The points of transit (POT) should

be clearly marked on the ground by a nail in the existing pavement or a hub in concrete on a new

alignment. Suitable references (at least two) should be marked permanently on the ground. The

horizontal intersection points (HIP) should be similarly marked on the ground and referenced. All

curve points viz beginning of transition (BS), beginning of circular curve (BC), end of circular curve

(EC) and end of transition (ES) should be marked and referenced. The centreline should be staked


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at 50 m intervals in plain terrain and 20m intervals in hilly terrain. Bench marks should be left

permanently at 250 m intervals. The cross-sections taken during the preliminary survey should be

supplemented by additional cross-sections at the curve points. Generally, cross-sections should be

available at intervals of 50-100m in plain terrain, 50-75m in rolling and 20 m in hilly terrain. The

survey is accomplished these days by a Total Station, with assistance from GPS (Geographic

Position System) which determines the location of survey points by satellites. But in the absence of

these instruments, an ordinary theodolite or compass shall be acceptable.

4.4. Soil Survey and Materials

The IRC Rural Roads Manual contains instructions on Soil Survey and materials for the road

projects.

Supplementary guidance on these subjects is given in Annexure 4.2.

The identification of the soil type in the field and the quick determination of its properties are the

basic requirement for an economical pavement design. It is not practical to carry out elaborate soil

tests on a large scale needed for the PMGSY. But the grain-size analysis leading to the soil

classification is a simple test and must be carried out. The determination of CBR by a rigorous

CBR apparatus on a large number of samples is not possible, and hence the Nomograph given in

Fig. 4.1 may be used. Alternately, a Dynamic Cone Penetrometer test, which is very simple and

inexpensive, may be used.

4.5. Cross-Drainage Structures

The IRC Rural Roads Manual contains instructions on the suitability of various types of cross-

drainage structures. Annexure 4.3 gives supplementary guidance.

4.6. traffic survey

A traffic survey is needed for existing roads that are proposed for upgradation/ rehabilitation. Traffic

is likely to be the highest in the post-harvest season. But, the survey cannot always wait till the

post-harvest season, and has to be taken up immediately after a particular project is identified for

being included in that year’s programme. If the traffic survey is done in a lean season, local enquiry

should be done to ascertain the post-harvest traffic, particularly of agricultural tractor-trailers, LCVs

and trucks.


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Since rural roads have hardly any traffic during night time, a 16-hour (say 5 AM to 9 PM) 3-day

classified volume count is sufficient. Hourly count is not of importance and a daily total is good

enough.

The standard proforma is given in Annexure 4.4.

For new roads which give access to unconnected villages, it is not possible to carry out a traffic

survey. But, the traffic likely to use the facility can be taken from the traffic counts on newly

constructed roads of similar conditions. As an approximation, the following categories may be

adopted :

Traffic (Average Daily Traffic-ADT)

1. New link roads taking off from existing roads

Less than 150

2. New through roads directly leading to Market centres

150-500

The ADT above signifies the average daily traffic consisting of all motorised and non-motorised

vehicles, including two-wheelers. For pavement design, only commercial vehicles need to be

considered. These form only 10-20 percent of the ADT.

As part of the data base for each rural road, a traffic count needs to be carried out atleast once a

year and the traffic data updated for each road every year.


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Fig. 4.1 : Nomograph for Computing Soaked CBR Value from Sieve Analysis Data


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4.7. Pavement Design

The Rural Roads Manual contains guidance on the design of pavements for Rural Roads. It has

been felt by some that these guidelines result in costly pavements, and there is scope for a

reduction in the cost. The IRC are being apprised of the need to revise the guidelines. Pending

such revision, the State Governments can design the pavements on alternative approaches which

can being about economy. Appendix 4.5 gives some guidelines in this regard.

4.8. Use of Local Materials

The States can design pavements on alternative approaches, other than the IRC Rural Roads Manual, with a view to bring about economy. Use of locally available materials which can result in considerable economy shall be investigated.

Recognising that the low volume rural roads are essentially low cost roads, the specifications for pavement materials in various layers should be as economical as possible, consistent with the traffic expected to use the road, the climatic conditions etc. From this angle, local materials which are cheaper to extract and involve minimum haulage cost should be made use of, to the maximum extent feasible. A variety of local materials can be used which may be grouped under the following categories.

• Better granular soil for use on improved subgrade/ sub-base or as surfacing for earth roads. • Mechanical stabilisation of local soil; stabilisation with lime, cement, lime and flyash, as appropriate. • Naturally occurring low grade marginal materials like moorum, kankar, gravel etc • Brick and overburnt brick metal • Hard stone aggregates

Past experience gained from long-term performance of test tracks in India on the use of local

materials shows that for the same pavement thickness, the use of local materials in lieu of the

conventional hard stone aggregates can bring about savings to the tune of 25% of conventional

construction costs. In situations where hard stone aggregates have to be carted from long


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distances of the order of 200 km, the maximised use of local materials can bring about savings in

material costs to the extent of even 40% of the conventional material costs.

Some of the more important points in the use of these materials are discussed in Annexure 4.6.

Specifications and design methodology for gravel roads are given in Annexure 4.7.

In most of the regions where black-cotton soil is predominant (parts of Karnataka, Andhra

Pradesh, Maharashtra, Gujarat, Madhya Pradesh and Chattisgarh), it is very economical to

stabilise the soil by adding lime, and such layers can be used as sub-base courses. For base

courses, the further addition of a small quantity of cement could be beneficial. The same treatment

can be applied to areas with clayey soil in the delta regions of Orissa and West Bengal. For the

silty soils of the gangetic plains, cement stabilisation can suitable the costly stone aggregates

courses in the sub-base and base courses.

Flyash can replace upto 50 percent of cement in concrete roads which them become as

economical as a flexible pavement, particularly in areas where stone aggregates are costly.

4.9. Roadside Shoulders

4.9.1. The Need

Since most of the low-volume rural roads have only single-lane carriageway, the need for adequate

roadside shoulders is much more critical than for multi-lane highways. The more important

functions performed by roadside shoulders on rural roads are.

• to lend structural support to various pavement layers

• to provide space for pedestrians and slow-moving vehicles like animal drawn carts, bicycles etc and for stalled vehicles

• to help drain out the surface water from the pavement to side ditches/ drains

• to provide space for bus stops

• to improve sight distance in cut sections

• to help in reducing severity of accidents

•


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Adequately designed shoulders shall be provided to protect the pavement. A drainage plan shall be prepared for each road.

to provide lateral clearance for road signs

The above requirements, however, are sadly neglected on a bulk

of the rural road network in India; on several rural roads, there

are just no shoulders at all. The more important aspects of

providing adequate roadside shoulders are discussed in the

subsequent paragraphs.

4.9.2. Suggestions for Adequate Design of Shoulders

Appendix 4.8 gives some suggestions on adequate design shoulders.

4.10. Drainage

One of the very important reasons for a very rapid loss in the level of serviceability of most of the

rural roads in the country is the lack of attention to appropriate drainage. It is basically due to the

lack of proper drainage that, despite the overdesigned pavements (generally comprising 3 layers of

WBM), the maintenance requirements of a rural road rise rapidly even during the early years of its

service life. The modern trend is to incorporate maintenance considerations at the design stage

itself. Ensuring proper drainage during the design life is considered one of the most essential pre-

requisites for a satisfactory performance of the road during its service life.

Provision of adequate drainage should be considered more of an investment than an

expenditure, since it yields benefits by way of more economical designs and much reduced

subsequent maintenance costs.

It should be mandatory to have a drainage plan prepared for each rural road project. Appendix 4.9

gives guidelines for achieving good drainage of Rural Roads. The following points must be taken

into the design of Rural Roads :

1. Provide the specified camber both for the carriageway and the shoulder.


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Shoulders should newer be allowed to be higher than the pavement.

2. Roadside drains, with proper longitudinal slopes leading the water to a natural water courses, must be provided.

3. When the road passes through a village, keep the road level high, with side drains on both sides.

4. In hill roads, provide lines (dry stone lining) side drains and interceptor drains (catchwater drains).


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CHAPTER 5

project preparation

5.1. Steps Involved

The various steps involved and the agency responsible for the Project Preparation are given below:

Sl. No. Activity Agency Responsible

1. Estimate Length of Roads for New connectivity or Upgradation

State Nodal Department

2. Distribution of State’s Allocation among Districts

State Nodal Department/ State level Agency

3. Selection of list of proposals in each district

PIU through District Panchayats

4. Vetting of list of proposals for each year State-level Autonomous Agency/ Committee

5. Finalisation of list of proposals for each year

State-level Standing Committee

6. Preparation of DPRs PIU

7. Scrutiny of DPRs PIU/STA

5.2. Detailed Project Report (DPR)

Each Rural Roads Project (whether a new link or upgrading an existing road) should have a separate

Detailed Project Report (DPR).

The DPR should be based on detailed survey and investigations, design and technology choice and

should be of such detail that the quantities and costs are accurate. No cost over-run shall occur due to

changes in scope of work, quantities and tendered rates. Guidance may be taken from IRC : SP : 19 for

preparing the DPR.

The steps involved in the preparation are as under:

1. Selection of alignment

: The suitability of the existing track as the final alignment is examined, and need for avoiding sharp kinks and dwellings is explored.


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2. Topographical survey

: The topographical survey is carried out with a plane table/ compass/ theodolite, designing the horizontal curves. A line of levels is run along the centre line and cross-sections are taken.

3. Soil survey : Samples of local soils are collected and tests like grain-size analysis, moisture-density relationships and CBR are carried out.

4. Material survey : The source of materials for forming the embankment, pavement layers and cross-drainage structures are identified and their leads established.

5. Hydrological survey

: The sites for bridges are selected, and hydrological survey to determine the discharge and HFL is carried out.

6. Traffic Estimation : On existing roads, traffic survey is done. On new roads, the traffic likely to ply is estimated. The growth rate is determined.

7. Pavement Design : Considering the soil strength, traffic and design life, pavement thickness is determined. Its composition is selected after exploring the ways to maximise the use of local materials.

8. Drainage Plan : A drainage plan is made for the road giving a scheme for the effective drainage of water into natural channels, supported by levels.

9. Design of cross-drainage works

: The type of culverts, bridges and causeways is selected and design of the various elements like foundations, substructure and superstructure is done.

10. Preparation of Land Plans

: Plans showing the land holdings and the selected alignment are made to a scale of 1:8000 to 1:2000, depending upon the availability of maps. The existing village plans available with the revenue authorities are generally used.

11. Preparation of road drawings :

: Alignment Plans, Longitudinal Sections and Cross-sections are prepared.

12. Preparation of drawings of C.D works

: Drawings of culverts, causeways and bridges are prepared.

13. Selection of specifications

: The specifications for various items of work are selected, keeping in view to adopt intermediate technology.


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14. Estimation of quantities of items of work

: Detailed quantities of each item of work are worked out.

15. Analysis of Rates : The rates for each item of work are analysed.

16. Estimate : The estimated cost is arrived.

17. Preparation of DPR documents

: The DPR documents re prepared.

The DPR shall be submitted in two volumes:

Volume I : Report and Estimate in A4 sizeVolume II : Drawings in A3 Size

Volume I (Report and Estimate) shall have the following contents:

Chapter No.

Title Coverage

1. Introduction Name of work, its status vis-à-vis Master Plan, Core Network, priority, terrain, geography, climatic conditions, habitations served

2. Alignment Obligatory points, existing tracks

3. Land Acquisition Present and proposed right-of-way, Need for new land, Status of Land Acquisition

4. Geometric Design Standards Roadway width, carriageway width, shoulders, design speed, horizontal curves, vertical gradient, cross slopes etc.

5. Topographical Surveys Surveys carried out

6. Soil and Materials Survey Borrow Area, Quarry Charts, availability of local materials, test results

7. Traffic Survey Different types of rural vehicles plying per day.

8. Pavement Design and Surfacing Type of pavement, thickness design, use of local materials, type of surfacing adopted

9. Hydrological Survey Data required for hydraulic design of cross-drainage works.


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10. Design of Cross-Drainage Structures and Drainage

Types of culverts, submersible bridges, paved dips, High Level Bridges, and justification for selection.

11. Protective Works Retaining walls, breast walls, check walls

12. Specifications Choice of technology, specifications adopted

13. Environmental Issues and Mitigation Measures

Reinstatement of borrow areas, erosion control etc.

14. Analysis of Rates Rates of different items of rural road pavement construction.

15. Estimate Provision for contingencies, Quality Control, Supervision

16. Construction Programme Bar chart showing activities and time frame

17. Undertaking for Future Maintenance

State’s commitment of funds needed for maintenance and adoption of maintenance management system.

5.3. drawings

The following drawings should accompany the DPR as Volume II:

1. Key Map, showing the State in relation to India, District in relation to State, and a district map showing all the Blocks, with the names of each Block marked.

2. A Block road map showing the Master Plan and the Core network and the proposed road.

3. An Index Map of the road showing the full road to a suitable scale, topographical features like rivers, canals, streams, railway lines, villages, Market Centres, other roads and Legend.

4. Plan and Longitudinal Sections of the road, showing 1 km in each sheet

5. Typical cross-sections

6. Detailed cross-sections

7. Drawings of culverts, submersible bridges, paved dips and High Level Bridges, giving General Arrangement Drawings (GAD), structural details.

8. Drawings of protective works like retaining walls, breast walls, check walls, drains

9. Miscellaneous Drawings like kilometre stones, Traffic signs,

5.4. choice of technology


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The DPRs shall provide for labour-oriented or appropriate technology, making maximum use of local labour and simple tractor-based equipment

Since there is a surplus of labour in most rural areas of the country, and Rural Road construction and maintenance can be efficiently implemented by labour-oriented or appropriate technology, the DPR should be prepared keeping this important consideration in view. Simple agricultural tractor-based equipment is very easily manufactured and serviced in the rural

areas, and can produce roads of acceptable quality for the PMGSY. The use of modern highway

construction equipment like large capacity Hot Mix Plants, Paver Finishers, Wet Mix Macadam Plants,

Vibratory Rollers, Earthmoving and excavating equipment may not be insisted upon, where it is not cost-

effective.

5.5. specifications

The MOST Specifications for Road and Bridge Works are intended for superior highway facilities like

National Highways and State Highways. They are too rich for the low volume Rural Roads. A separate

book of Rural Road Specifications is being drawn up by the IRC. Till such time as they are available, the

MOST Specifications can be used only after bringing down the requirements suitably. Alternatively, the

State PWD Specifications can be adopted, if they are appropriate to the low-volume Rural Roads.

5.6. standard nomenclature of items of work

The items of work involved in Rural Road works are not large in number. It would be advantageous if the

nomenclature of these items is standardised. This will facilitate comparison of rates across the country.

This is being done by the IRC, and the estimates and BOQ should be based on the standard items.

5.7. estimates

The estimates shall reflect the true scope, quantum and cost of works, based on detailed surveys and

investigations. As mentioned earlier, the GOI shall not bear any increase in the cost of the project. The

following points may be kept in view while framing the estimates:

1. The borrow areas must be located accurately. It is not advisable to borrow earth from the road land. Temporary earth from adjacent fields may be borrowed with the consent of the farmers. Otherwise, fallow land, and non-agricultural land, near to the project may be identified. The lead and lift involved may be accurately assessed and accounted for. The haulage method should also be identified.


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2. The sources of gravel, sand, stone aggregates, bricks and marginal materials should be accurately identified, and the availability of the required quantity and quality of materials established. The leads involved, and the condition of roads leading to the sources shall be determined.

3. The rates shall be based on the State’s updated Schedule of Rates. If it does not exist, the rates may be analysed as per Standard Analysis of Rates.

4. No provision for escalation shall be allowed.

5. For externally funded projects, contingencies supervision charges may be allowed as agreed upon.

Several roads in a Block or in adjacent Blocks can be combined into packages of a value of Rs 1-5 crores.

The abstract of the cost shall be given in Forms F-1, F-2A and F-2B (Annexure 6.1).

The total proposed for the State shall be submitted in Districtwise volumes to the NRRDA.

A package will be identified by a unique number given to it. The package number shall be designated as

RJ 03 07, as an example, shown below :

RJ 03 07

Two letter code for the State

Two digit code(Sr. No.) of the

District in the State

Two digit code (Sr.No.) of the package

within the District


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STATE/ UNION TERRITORY CODES

Name of State Code Name of State Code

Andhra Pradesh AP Nagaland NG

Arunachal Pradesh AR Orissa OR

Assam AS Punjab PB

Bihar BR Rajasthan RJ

Chattisgarh CG Sikkim SK

Goa GA Tamilnadu TN

Gujarat GJ Tripura TR

Haryana HR Uttaramchal UT

Himachal Pradesh HP Uttar Pradesh UP

Jammmu & Kashmir JK West Bengal WB

Jharkhand JH Name of Union Territory Code

Karnataka KN Andaman & Nicobar Islands AN

Kerala KR Chandigarh CH

Madhya Pradesh MP Dadra & Nagar Havei DN

Maharashtra MH Daman & Diu DD

Manipur MN Delhi DL

Meghalaya MG Lakshadweep LK

Mizoram MZ Pondicherry PD

5.8. Analysis of rates

If rates are based on Analysis of Rates the following principles should be kept in view:

1. The work should be carried out predominantly through labour-based technology, or the use of small capacity equipment.

2. The usage charge of equipment shall be based on the current market price, its useful life, salvage value, repairs and maintenance cost, running cost and wages of operators.

3. Contractor’s overheads and profits may be considered as under : (i) 15% of labour component cost and (ii) 10% of the equipment/plant component cost.

4. The output of equipment and labour should be considered on a realistic basis, appropriate to Rural Road works.

5.9. Environmental management


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5.9.1. Introduction

It is very important that the impact of road schemes on the environment be considered at the planning and

design stage itself. It is also necessary that adequate safeguards are taken to prevent environmental

degradation during the construction phase.

5.9.2. Selection of Alignment

Most of the Rural Roads are aligned along tracks or footpaths which are already in existence. Utilising the

existing facility to the maximum possible extent will minimise the hardships caused by land acquisition.

Ecologically sensitive areas like national parks, wildlife and bird sanctuaries, reserve forests should be

avoided as far as possible, but in case that is unavoidable the views and suggestions of the concerned

authorities must be incorporated in the design. In general, drainage and hydrology should be given due

consideration. An alignment which balances the cuts and fills is not only economical, but also avoids the

problems of disposal of excess material from cuts and locating fresh borrow areas.

5.9.3. Borrow Areas

It is observed that in most of the Rural Roads being constructed now, the borrow areas are located just by

the side of the road embankment. This may be economical to the contractor, but it is an environmental

hazard, because of the following:

•

Environmental and social concerns must be addressed adequately in the PMGSY projects.

the location of deep borrow pits at the toe of the embankment undermines the stability of the embankment

• the borrow pits are cut at varying depths, with the result that water stagnates and is not drained effectively. The stagnant water breeds mosquitoes and is a health hazard.

It is, therefore, suggested that as far as possible, borrow pits should not be dug close to the road

embankment. Earth may be taken from the adjoining fields by obtaining consent of the farmers. Earth may

also be borrowed from areas not cultivated, though this may involve some lead. The tender documents

should clearly indicate the borrow areas identified, and the tender items must specify the lead and lift

involved, so that the contractor knows the scope of the work and quotes accordingly. The borrow areas


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must be landscaped with vegetation such that they do not present ugly scars.

5.9.4. Turfing

In most of the Rural Roads, erosion of the slopes of the embankments, rain cuts and erosion of the earth

in the shoulder are commonly observed defects. The erosion of the slopes causes the loss of the roadway

width, besides leading to sedimentation of the adjoining water bodies and natural drainage channels. This

must be arrested by turfing the embankment slopes and earthen shoulders. Provision must be made in

the estimates for this item.

5.9.5. Environmental Measures in Hill Roads

The construction of roads in hilly region disturbs the ecosystem in many ways. The main ecological

problem associated with hill road construction are:

(i) Geological disturbances such as landslides

(ii) Soil erosion

(iii) Destruction and denuding of forest

(iv) Interruption and disturbance to drainage pattern

(v) Siltation of water reservoirs

(vi) Aesthetic degradation

Landslides and soil erosion can be dealt with by mitigation measures such as :

(i) Adequate surface drainage through a system of catch-water (interceptor) drains, side drains and culverts.

(ii) Sub-surface drainage through a system of burried French drains, with the use of perforated pipes, geo-fabrics, graded filters.

(iii) Construction of check walls, breast walls, gabion walls.

(iv) Protection of cut faces by sodding or turfing, vegetation or pitching, asphalt mulch treatment, use of jute or coir netting.

(v) Control of rock fall through the use of geogrids and rock bolts.

Forests add to the beauty of hills, besides preventing soil erosion. Thus, any felling down of trees during

the construction of hill roads should be minimised. If some trees are cut out of compulsion, additional

compensatory tree plantation should be carried out.

When hill faces with vegetation cover are cut, the cut faces present a scar on the general landscape.

Visual appearance should be restored through fresh vegetation cover, which may be hastened through


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asphalt mulch technique or jute/coir/geofabric/geogrid matting.

5.9.6. Measures Needed in Desert Roads

Desert roads passing through shifting sand dunes require special design considerations. Some of the

proven techniques are :

• avoidance of partial cut and partial fill sections

• avoidance of high embankments

• provision of liberal embankment width

• planning of hardy specimens of shrubs and grass.

5.9.7. Road Drainage

At the edges of the road land, shallow roadside drains should be provided to drain away the water from

the road. These drains must have a designed longitudinal gradient, so that the water is led to a natural

drainage channel. Where two roads intersect, there should be culverts to continue the drainage if the

slope of the country demands it. If the levels permit, and the intersection is on higher ground, the side

drains may have longitudinal slopes away from the high ground.

To prevent erosion of the side drains, they must have sufficient cross-section so as to promote a non-

silting and non-scouring velocity. It is always preferable to turf the sides of the drain to prevent erosion,

which can lead to sedimentation and reduction in carrying capacity.

Inadequate waterway across the road can cause flooding of the land upstream; such situations must be

avoided.

The road construction should not adversely impact on fisheries pond, aquatic ecology and other beneficial

uses of water by the community.

5.9.8. Roadside Plantations

To improve the landscape, suitable species of trees and shrubs should be planted along the road, away

from the road embankment. They should preferably be at the land boundary, so that the future

encroachment of road land is avoided. The community must be encouraged to take up tree plantation

activities and look after them. The choice of species should be made in consultation with the local

community and should include fuel wood and fodder species to the maximum extent.

5.9.9. Roads Through Villages

When roads pass through villages, care shall be taken to ensure that there are side drains on either side


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to drain away the water from the road and the discharge from the abutting houses. The road level shall be

sufficiently above to ensure that the road itself does not act as a drain. Provision of a concrete pavement

provides a dust-proof and low maintenance road, which suffers less damage during occasional

overtopping.

5.9.10. Use of Cut-Back

It is the normal tendency on the part of the contractors and the engineers to dilute the bitumen by adding

diluents like kerosene. The kerosene and other diluents will ultimately find their way to water-bodies and

contaminate them. The use of cut-backs should be prohibited. If liquid bitumen is needed for spraying and

premix work, an emulsion should be preferred. Cut-backs shall be permitted only in extremely cold

temperatures.

5.9.11. Conservation of Stone Materials

Though stone sources are abundant in India, the use of stone should be restricted to the barest minimum.

Wherever possible, low cost marginal materials like soil, gravel, murram and kankar should be used, if

necessary by processing them by stabilisation.

5.9.12. Use of Flyash

In areas near to thermal power plants, flyash is available in plenty, almost at a throw-away price. Flyash

poses environmental problems in its disposal. Hence flyash should be used in Rural Road construction in

a big way. It can be used :

• as an embankment fill material

• as a partial replacement for cement in cement concrete pavements

• as a stabilising agent in conjunction with lime, for soil stabilisation and lime-flyash-concrete.

Since the use of fly-ash wherever possible within a radius of 100 Km of thermal plants is mandatory, the

PIU shall ensure that the possibility of its use is fully investigated.

5.9.13. Historical/ Cultural/ Religious Monuments

The road alignment should not cause impact on or damages to historical and cultural and religious

monuments.

5.9.14. Environmental Considerations During Maintenance

The following guidelines may be noted:


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1. For making up the eroded slopes and shoulders, earth should not be borrowed from roadside land. This leads to formation of deep side channels, endangering the stability of the road embankment and creating pools of stagnant water where mosquitoe breeding can take place. Earth should be borrowed from nearby fields after obtaining consent of the farmers.

2. The turf on embankment slopes, shoulders and drainage ditches must be trimmed periodically.

3. The culverts and bridges, and the channels around them, should be desilted periodically so that water flows away quickly without stagnation.

5.10. use of consultants for preparation of dpr

The task of survey, investigations, design and preparation of DPRs is laborious and requires skill and

experience. Since PMGSY is a time-bound programme, State Governments need to build up capacity to

prepare DPRs of acceptable quality. For this purpose, they may outsource this service, partly or wholly, to

Consultants with adequate expertise and capacity. This may be done after inviting expression of interest

and short-listing prospective consultants meeting the requirements including previous experience of

preparing DPRs of road works equal to at least 50% of the value of the proposed DPRs,

The work of design Consultants should be periodically evaluated by assessing :

(i) whether any serious excess has occurred between the estimated and as executed quantities

(ii) whether any design deficiency has come to the notice of the Department in the execution of the work

The Consultants, whose work has not been satisfactory, may not be awarded further works.


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CHAPTER 6

Scrutiny of Detailed Project Reports

6.1. Steps Involved

The following steps are involved in the scrutiny of the DPRs :

Sl. No. Activity Agency Responsible

1. Completion of Forms F1-F8 PIUs

2. Scrutiny of DPRs by SEs S.E.

3. Scrutiny of DPRs by STA STA

4. Summary of Proposals State Level Agency

5. Submission of Proposals to NRRDA State Level Agency

6. Approval of Proposals NRRDA/MoRD

6.2. Preparation of DPRs by PIUs

6.2.1. Once the DPRs have been prepared for each road work, the details have to be filled in Forms F1-F9. These Forms are enclosed in Annexure 6.1.

The information in the Forms are as under:

F1 : Package-wise Summary Sheet

F2 A : Road-wise Summary of Cost of Pavement

F2B : Road-wise Summary of Cost of CD Works

F3 : Typical cross-section of Road for New Construction

F4 : Details of Existing Roads Proposed for Upgradation

F5 : Typical cross-sections of Road for Upgradation

F6 : Detailed Estimate for Pavement

F7 : Detailed Estimate for CD Works

F8 : Rate Analysis

F9 : Summary of on-site verification of DPRs by Executive Engineer

6.2.2. The PIUs are required to ensure that the proposals forwarded to the State Technical


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Agency for scrutiny meet the following requirements :

1. The Proposed road links shall be a part of the Core Network.

2. The selection of the link for new connectivity is with due prioritisation based on the total population (Direct & Indirect) sub-served by the proposed road.

3. There are no unconnected habitations of specified population in the concerned District while proposing a road for upgradation under PMGSY. This is required to be certified.

4. A Detailed Project Report (DPR) is to be prepared for each proposal after collecting necessary base data. The DPR essentially should contain the following:

• Population of the habitation(s) connected.

• Population (Direct + Indirect) served by the proposed road.

• A drawing (Not to scale) showing the nature of connection and the habitation(s) connected/ served by the proposed road.

• Type and condition of the existing road/track.

• Road Land Width (RLW) available both in built up area as well as open area.

• Data from Engineering Surveys such as alignment, LS and CS.

• Processed data of LS & CS

• Geometric design particulars

• Soil Investigation results for the sub grade such as Gradation, OMC, CBR etc.

• Hydraulic data for the design of CD works

• Base year Traffic data of Motorised and Non-motorised vehicles

• Growth rate adopted and projected traffic for the horizon year based on the design life.

• Layer wise design of the pavement along with a sketch of dimensioned cross section indicating the Pavement Layers, Carriageway (CW), Roadway (RW) and Road Land Width (RLW).

• Design details of CD works/ Protection works and associated working drawings.

• Estimation of BOQs

• Estimation of cost as per standard data analysis and SSR

• Provision for Logo and other road furniture


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• Total cost of the proposed road and cost/ km for the same

5. The data is complete in all respects in Formats F1 to F9 which forms an integral part of the DPR.

6. The design of Geometrics, Pavement and CD works should be strictly in accordance with the provisions of the Rural Roads Manual (RRM) (IRC : SP 20 : 2002).

7. The DPRs have been personally checked and signed by the Head of the DPIU and scrutinised by the S.E. DPRs which have been checked on site by EE/SE shall be so certified.

6.2.3. It is to be clearly understood that ensuring the reliability and accuracy of the data is the responsibility of the State Executing Agency, and in particular of the PIU. The DPR is to be submitted for Technical Scrutiny to the STA. The PIU shall carry out the corrections/ rectifications suggested by STA. The following points may be noted :

1. Proforma C gives a check-list for individual road projects to be filled in by the PIUs and STAs (Annexure 6.2).

2. The final design, estimation of BOQs and the cost are to be as per the technical scrutiny by STA.

3. In case of difference of opinion, on any issue, the same is to be discussed among STA, PIU and Senior Engineers to sort it out. If this is not possible, the same is to be referred to NRRDA for necessary clarification/ decision.

4. After the Technical Scrutiny by STA is complete, the PIU has to fill in the check list and get it counter signed by the STA.

5. The scrutinised copy of the DPR will be retained with PIU.

6.

The STAs and PIUs are required to check the DPRs thoroughly. The Superintending Engineers shall also exercise a scrutiny of the proposals.

The check list signed by the Engineers and STA shall be in quadruplicate (this should not be difficult since every PIU has been equipped with computers). One copy will be sent to NRRDA, New Delhi, one will be with STA, one will be sent to State Headquarters (EA) and the fourth will be retained with the PIU along


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with DPR.

6.2.4. The primary responsibility for the accuracy of the provisions in the DPR shall rest with the Executive Engineer. He shall personally himself satisfy that :

• the proposed road links form part of the Core Network and the priority criteria laid down by MORD from time to time;

• all the information in Forms F1-F9 are given;

• adequate road land is available;

• all surveys and investigations have been done with due diligence;

• leads of materials have been assessed correctly;

• rates of work items are reasonable;

• all designs have been done correctly; and

• the overall cost of the project is reasonable.

The Executive Engineer shall check at least 30% of the DPRs on site.

6.3. Scrutiny by SEs

The Superintending Engineers (SEs) are required to exercise a scrutiny of the proposals prepared

by the PIUs, in regard to conformance to guidelines, design standards, specifications, cost etc. The

SEs are expected to examine the proposals personally, on a random basis, check at least 10

percent of the proposals.

It may be mentioned that cross-drainage structures having a length of 15-25m should be inspected

by the SEs or higher officers, who shall confirm the need for the structures and approve the design.

The SEs shall be accountable for the accuracy of the provisions in the proposals.

6.4. Scrutiny by STAs

Ministry of Rural development has identified in consultation with each State Government, reputed

Technical Institutions to scrutinise the project proposals prepared by the State Governments,

provide requisite technical support to the State Governments, and undertake Quality Control tests

upon specific request. These are being referred to as the State Technical Agencies (STA). The

coordination of activities of the STAs would be performed by the NRRDA, who may add to or

delete from the list of institutions, as well as to entrust specific tasks from time to time. The Ministry


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of Rural Development/ NRRDA may from time to time identify additional technically qualified

agencies to provide these services to the State Governments and to perform such other functions

as may be necessary in the interest of the Scheme.

The PIU will forward the proposals alongwith the Detailed Project Reports to the State Technical

Agencies for scrutiny of the design and estimates. The Proformae F-1 to F-8 will form part of the

DPR. These will be forwarded at the level of the Superintending Engineer or the supervising officer

of the PIU, before they are sent to the State Technical Agencies. A summary of the road works will

be prepared in Proformae ‘B’, circulated by the Ministry/ NRRDA (Annexure 6.2).

The DPRs are to be scrutinised by the State Technical Agency (STA) in the light of the PMGSY

Guidelines, IRC Specifications as contained in the Rural Roads Manual/ IRC SP 20 : 2002 and the

applicable Schedule of Rates.

The STAs may while scrutinising the proposals

1. ensure that the proposals are mainly for new connectivity as long as unconnected eligible habitations remain. Upgradation is to be considered only after all unconnected habitations 500/250 (as applicable) are connected in the District and a certificate is given by the PIU to this effect.

2. check that the proposal are part of the Core Network.

3. the pavement design is as per the provisions in Rural Roads Manual (RRM) IRC SP : 20 : 2002 for all the layers.

4. check whether the soil tests have been carried out and traffic has been estimated properly and check whether the use of local materials and cost-effective technology has been made.

5. ensure that the earth work is not proposed by making borrow pits in the road land.

6. check the geometric design parameters and make sure that they are as per RRM/Guidelines.

7. check whether drainage layer is necessary and allow the drainage layer only after considering the factors associated as per the provisions of RRM.

8. ensure that a proper drainage plan has been worked out.

9. verify that the method of flood and waterway computations is satisfactory and


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check the design of suitable CD works as per the guidelines and site conditions.

10. check whether the CD works require additional protection works based on the site conditions.

11. check the items and estimation of BOQs and the cost as per Standard Rate Analysis and SSR.

12. verify whether suitable and adequate provisions are made for PMGSY logo, signs, Km & Hm stones, guard stones as required.

13. visit the site if so requested by the PIU for advice, or where it is flet that the design needs site inspection.

14. point out the short-comings and offer suggestions for their rectification (major defects shall be intimated in writing).

15. at the end of the scrutiny, complete the checklist filled and signed by PIU Engineers and certify to the effect that the Design and Estimation are as per the data and SSR provided by the PIU and may be cleared.

The STAs should give in writing the major deficiencies observed in the project proposals to the

Executing Agency with a copy to NRRDA. These observations will be based on the findings drawn

from the Detailed Project Report prepared by the Executing Agency. The State Technical

Agencies, after completion of the scrutiny shall send a detailed note on the experiences on the

scrutiny of the project proposals in the respective States and communicate the same to the

Executing Agency as well as NRRDA. The Executing Agency shall take a note of the observations

of the STA for necessary corrections in the current proposals and keep them in view for future

guidance.

6.5. Compilation by PIUs

The DPRs after scrutiny by STAs and carrying out of corrections/ design changes shall be

forwarded to the State Nodal Department/(State level Agency along with Forms F1 to F9 (duly

updated) and MP-I and MP-II containing details of proposals made by MPs and proposals

accepted/ not accepted along with specific reasons.

6.6. Summary of Proposals

The State-level Agency will consolidate the proposals from each PIU, after verifying that they have

been duly scrutinised by the respective STAs. They will then prepare the State Abstract and send


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all the Project proposals to the NRRDA alongwith the Proformae MP-I and MP-II of each District as

well as the proformae.

Proformae A and B (Annexure 6.2) gives the forms for summarising the district-wise proposals and

package-wise proposals. Form A will be signed by the State Secretary of the Nodal Department on

the Basis of Form B of all the districts.

6.7. Submission of Proposals to NRRDA

All the summaries (Forms A and B) and Checklists (Form C) are to be bound together for each

State and are to be submitted to the NRRDA.

6.8. Approval of Proposals

The NRRDA will process the proposals and submit them for clearance as given in Chapter 3.

6.9. Administrative Approval and Technical Sanction

The Administrative Approval and Technical Sanction to the works cleared by the MoRD shall be

accorded by the competent authority as per the State’s rules.

6.10. Schedule of Activities

Table 6.1 gives the schedule of activities and the time allotted.

Table 6.1Schedule of Activities in Connection with Proposals

Sl. No. Activity Start Finish No. of Days

1 Distribution of amount district-wise 31st July

2 Preparation of list of proposals at district level by the District Panchayat (including obtaining suggestions from MPs etc).

1st Aug 15th Sept 45 days

3 Clearance by State level Standing Committee of district proposals (clearance may be phase on district wise).

1st Sept 30th Sept 30 days

4 Preparation of DPRs by PIU’s (preparation may be phased out as per clearance).

15th Sep 30th Oct 45 days


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5 Scrutiny of DPRs by STAs (scrutiny may be phase out in consultation with STAs so that batches of DPRs are sent to STAs through the 1 months period available.

30th Sept 30th Nov 60 days

6 Forwarding of proposals to NRRDA (Consolidated to entire State)

1st Dec

7 Clearance by Empowered Committee 5th Dec 15th Dec 10 days

8 Administrative Approval and Technical Sanction

15th Dec 22nd Dec 7 days

9 Tendering 15th Dec 31st Dec 15 days

10 Contracting By 31st March

The yearly proposals should be formulated and clearance obtained between 1st August and 15th December. The works must be awarded by 31st March.


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CHAPTER 7

procurement

7.1. Implementation by contractors

All works will be implemented by Contractors. Contracts will be awarded to private contractors or

State owned companies.

7.2. Press Advertisement

Well established procedure for tendering through competitive bidding will be followed for all

projects. In order to give wide publicity to the tendering process and generate adequate

competition, the tenders shall be published in the local press in the State in local language or

English as well as in one national newspaper in English. Tender notices shall also be published on

the pmgsy website in such manner as may be prescribed by the Standard Bidding Document and

associated guidelines of NRRDA.

7.3. Scope of Work Tendered

All the projects scrutinised by the STAs and cleared by he MoRD shall be tendered as such, and

no changes shall be made in the scope of the work.

7.4. Standard Bidding Document

The State shall follow the framework of the Standard Bidding Document, prescribed by the MoRD,

for all the tenders, making only such changes as are necessary for meeting the objective

requirements in the States. The salient features of the SBD are:

1. The SBD follows the format of the MOST standard bidding document, which is similar to the format for the National Competitive Bidding for Works (India Version) as approved by the Ministry of Finance for World Bank aided projects.

2. The SBD mandates a two envelope tendering process consisting of the Technical Bid and Financial Bid.

The Technical bids are opened first and evaluated and the Financial bids of only

those whose technical bids are deemed to be responsive are opened.

3. The SBD gives detailed instructions to enable offers by well qualified contractors


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with adequate bidding capacity to be considered and provides a 36-point check list to enable the State authorities to prepare State-specific bid documents.

4. The SBD lays down the time frame for various activities in the tendering process.

5. The SBD contains a payable item for five years for routine maintenance of the work for each of the five years. The cost of maintenance is to be borne by the State governments.

6. The SBD has an option of inviting bids on an item rate basis and on a percentage basis.

7. The SBD provides for detailed and legally enforceable Conditions of Contract and a simple dispute resolution system.

The adoption of SBD is mandatory for the states with effect from 27th March, 2003.

For Bank financed works, the bidding document shall be vetted through the Bank.

The instructions and checklist for preparing the state-specific Bidding documents for PMGSY

Works are given in Annexure 7.1.

7.5.

The Standard Bidding Document shall be followed on all PMGSY works. For externally aided works, the bidding document shall be got vetted through the aiding agency. A strict time schedule has been prescribed for the tendering process and shall be observed.

Bidding Procedure and Evaluation

The Standard Bidding Document envisages submission of

bids in two envelopes marked “Technical Bid” and

“Financial Bid”. On the basis of the eligibility criteria laid

down in the Instructions to Bidders (ITB), the Technical Bids

will be evaluated, and a list will be drawn up of the

responsive bids whose Financial Bids are eligible for


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consideration.

The evaluation of the Technical Bid will be done on a Pass/ Fail basis, considering the following :

Pass/ Fail

1. Whether Demand Draft is enclosed for the cost of bidding documents downloaded from internet.

2. Whether Earnest Money is enclosed in a separate cover

3. Whether the Qualification Information has been furnished and, if so, whether the bidder qualifies.

4. Whether documents supporting Qualification Information have been furnished.

5. Whether affidavit and undertaking as required have been furnished.

6. Whether the documents have been properly signed

Only those bidders who pass each of the above criteria will deemed to have been responsive

bidders whose financial bids will be considered.

The evaluation of the Financial Bid will be to determine the responsiveness in respect of the

following, on a Pass/ Fail basis :

Pass/ fail

Whether the bid conforms to all the terms, conditions, and specifications of the bidding documents without any material deviation or reservation as described in Clause 25.2 of the ITB in the Bidding Document.

The Financial Bids of only these bidders will be opened on the specified date in the presence of

bidders. The remaining financial Bids will be returned unopened to the bidders. The Employer will

award the Contract to the bidder whose bid has been determined to be substantially responsive to

the bidding documents and who has offered the lowest evaluated bid price, the Employer reserving

the right to accept or reject any bid.


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The various steps involved in the bidding process and their chronology are indicated below:

1. Preparation of Bidding Document : The SBD is taken as the basis, and the necessary modifications are made as per instructions of NRRDA (see Annexure 7.1).

Time Taken (days)

Cumulative Time Taken (days)

2. Adverting the NIT : 7 7

3. Sale of Bid Documents : 15 15

4. Pre-bid meeting : -- 18

5. Issue clarifications/ amendments : 3 21

6. Last Date for bid submission and opening of outer envelop and Technical Bid

: 21 28

7. Evaluation of Technical Bids and notification of results

: 5 33

8. Opening of Financial Bids : 1 34

9. Evaluation and Approval of Financial Bids

: 15 49

10. Communication of Approval : 7 56

11. Submission of Performance Security, Agreement and Work Order

: 9 65

12. Commencement of work : 10 75

In case no bids have been received, or in the opinion of the State adequate competition has not

been generated, the tendering process (Steps 2 to 6) shall be repeated, giving the same time for

each step.

If the technical evaluation indicates that no party has been qualified or an inadequate number have

been qualified (say, single tender or inadequate number for generating competition), the tendering

process (steps 2 to 7) shall be repeated.

If, after the financial evaluation, it is found that there are no responsive bids, the tendering process

(steps 2 to 9) shall be repeated. The same condition applies to cases where the Performance

Security is not furnished.


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If the bidder who is awarded the work does not start the work within the time stipulated, the

contract may be terminated as per the Condition of Contract and the entire bidding process

repeated.

7.6. Time Taken for Bidding

All State level formalities relating to the issue of tender notice, finalisation of tender and award of

works shall be completed within 120 days of clearance of the proposals, failing which is will be

deemed that the works in question have been cancelled. A report on the circumstances in which

the work could not be awarded must be sent to the NRRDA. The State Government shall stand to

lose the project in case of any inordinate delay in tendering and award of works.

7.7. Excess of Bid Amount Over Sanctioned Project Cost

In case the value of accepted bids is above the project cost cleared by the MoRD, the excess will

be borne by the State Government. Since it is likely that for some works, the approved bids may

also be below the project cost cleared, it has been decided that the total saving on account of such

lower accepted bids may be applied by the State to meet the additional expenditure on account of

higher accepted bids for other works with the approval of the MoRD.

7.8. Specifications

The Bid Documents shall clearly mention that the works shall be executed according to the

Specifications for Rural Roads. The NRRDA shall cause to be published a Book of Specifications

and a Standard Data Book for the proper calculation and analysis of rates and quantities. All State

Government shall be bound to use such data.

7.9. Bill of Quantities

The Bid Documents shall adopt the standard nomenclature of items as contained in the Standard

Bill of Quantities.


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chapter 8

project implementation and Contract Management

8.1. state level agencies

8.1.1. Each State Government/ UT Administration would identify one or two suitable Agencies

(having a presence in all the Districts and with established competence in executing time-bound

road construction works), to be designated as Executing Agencies. These could be the Public

Works Department/ Rural Engineering Service/ Organisation/ Rural Works Department/ Zilla

Parishad/ Panchayati Raj Engineering Department etc. who have been in existence for a large

number of years and have the necessary experience, expertise and manpower. In States where

more than one Executing Agency has been identified by the State Government, the distribution of

work would be done with the District as a unit. In other words, each District will be entrusted to only

one Executing Agency. The Executing Agency will have a Programme Implementation Unit (PIU)

in the District, which should have an officer of the rank of Executive Engineer as its head. The PIU

should be dedicated to PMGSY. This is especially desirable for all States having an annual

allocation of Rs 75 crores or more under the PMGSY and all the participating States in the

externally aided projects. All PIUs will be manned by competent technical personnel from amongst

the available staff or through deputationists. No new posts will be created for this purpose. The

Executive Engineers as well as the heads of PIUs (as the case may be) will be designated as

officers of the State level Agency (see para 8.1.3), so as to enable them to operate on the funds of

the Agency.

8.1.2. Every State Government/ UT Administration shall nominate a Department as the Nodal

Department, who will have the overall responsibility for implementation of the PMGSY in the State.

This would be the Administrative Department responsible for the Executing Agency entrusted with

the execution of the road works. In the event of there being two Executing Agencies, the

Department responsible for the larger of the two Agencies shall be the Nodal Department. All

communication between the Ministry of Rural Development and the State Government would be

with and through the Nodal Department/ State-level Agency.


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8.1.3. The Nodal Department will identify a State-level autonomous Agency (Society etc.), with a

distinct legal status, under its control for receiving the funds from the Ministry of Rural

Development. If there is no such State-level Agency, the Nodal Department will take steps to

register an Agency under the Registration of Societies Act, (there should not be more than one

Agency), so as to be able to receive the funds. The Agency will be headed by the Minister or the

Chief Secretary and the Secretary in charge of the Nodal Department or a senior officer will be the

Chief Executive. All the proposals will be vetted by the Agency before they are put up before the

State-level Standing Committee and are sent to the NRRDA for clearance by the Ministry of Rural

Development.

It will be desirable that the States, particularly those whose road construction programmes have

been taken up by a number of different agencies in the past, invest the role of Executing Agency

on the State level Autonomous Agency itself and enable it to take requisite experienced personnel

from the available pool of talent. The PIU in such cases will be the district arm of the State agency,

enabling the formation of a compact and adequately staffed executing agency with a clear line of

command and control.

8.1.4. Each State Government shall set up a State-level Standing Committee (preferably headed

by the Chief Secretary) to vet the Core Networks and the Project proposals to ensure that they

have been formulated in accordance with the Guidelines. The Committee shall include as members

the Secretary of the Nodal Department, Heads of the Executing Agency, representatives of the

State Transport, Police, Panchayati Raj and Public Works Departments, State Information Officer

of the NIC, as well as the STAs for the State. The State Level Standing Committee would be

responsible for close and effective monitoring of the Programme, and oversee the timely and

proper execution of road works. The State-level Standing Agency shal place the following matters

before the Committee :

• Proposals for road works, and deletions, additions and substitutions

• Correction of factual errors in the Core Network

• Abstract of SQM Monitoring reports and abstract of action taken

• Status of programme data on OMMS data base

A copy of the minutes of the State-level Committee shall be endorsed to the NRRDA.


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8.2. programming

In areas other than Hill States and A&N Islands, the road works shall be completed within a period

of 9 months from the date of work order. In the case of the Hill States [North-East (except Assam),

Sikkim, Himachal Pradesh, Jammu & Kashmir, Uttaranchal] and the Andaman & Nicobar Islands,

however, two working seasons – about 18 months – may be allowed to the Executing Agency to

complete the projects cleared by the Ministry of Rural Development under the Programme. This is

to enable the road formation to stabilise during one season, followed by pavement works in the

subsequent working season. Except for the Hill States, the road works under the PMGSY shall not

be taken up in stages. In the case of Hill States and A&N Islands, where the work is executed in

two stages, works due for completion of the final stage will take precedence over new works in the

Annual works. Once the road works are taken up, they should be completed to the requisite

Technical Specification in the prescribed time-frame. Time is of great essence in this programme

and no time or cost over-run is permitted. In order to keep a close watch on the progress, it is

necessary to draw up a well-defined time-bound programme. The work can be broken down to

specific activities and a certain period is assigned to each. A typical list of activities and the time

allotted to each is given in Fig. 8.1. This is only an indicative list,

The PMGSY works shall be completed in a period of 9 months in areas other than Hill States and A&N Islands. In the Hill States and A.N. Islands, the works shall be competed in 18 months. Under the PMGSY, no time or cost over-run is permitted.

and the implementing agency is free to change it to suit the needs of a particular project. The Contractor is expected to prepare his own Works Programme, and this should be taken into consideration when finalising the programme. To avoid time over-runs, the Executing Agency shall incorporate suitable Penalty Clauses, as stated in Standard Bidding Document.

8.3. Steps Involved in Implementation

The following steps are involved in the implementation of the project:


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1. Issue of notice to start the work

2. Start Date

3. Submission of Works Plan, Methods Statement and Quality Assurance Plan by Contractor

4. Approval of 3 above by Engineer

5. Pre-commencement levels

6. Setting out works by contractor and Engineer’s approval

7. Issue of Working Drawings

8. Approval of Temporary works

9. Approval of borrow area, quarries, materials

10. Approval of Traffic Diversion Plan

11. Supervision of works/ approval of quality/ acceptance

12. Measurement/ valuation/ interim payment

13. Final Payment

14. Approval of “as-built” drawings

15. Issue completion certificate for works

16. Approval of Maintenance Plan

17. Inspection of Maintenance works

18. Payment for Maintenance works

19. Issue of Final Completion Certificate

8.4. contract management

The implementing agency is expected to manage the contract in a fair and efficient manner

keeping in view:

• the need to adhere to the time targetted programme,

• that the quality of work is of an acceptable standard,

• disputes are resolved amicably and in a fair manner without disrupting the progress and sacrificing quality,

• that the conditions of contract are enforced in an impartial manner,


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• the Contractor’s bills are paid promptly.

In order to make the engineers familiar with the Bidding Documents, Specifications and Quality

Control, a training course should be conducted in each State, once or twice a year.

An important principle of PMGSY is the assured availability of funds, so as to facilitate timely

completion of road works. It shall be the responsibility of Executing Agencies to ensure timely

payments to the Contractors, subject to satisfactory execution of work. Delays in payments due

should be avoided.

8.5. Acceptance of BID

The Letter of Acceptance of Bid shall be in the standard form given in the Standard Bidding

document and shall be sent to the successful Bidder only after evaluation of bids has been

completed and the approval of the competent authority has been obtained. The competent

authority for acceptance of bids shall be as per prevalent rules in the State.

8.6. Contract Agreement

The contract Agreement shall be signed as per the standard form given in the Standard Bidding

Document.

8.7. Commencement of works

The person authorised to sign on behalf of the employer shall issue a notice to proceed with the

work to the Contractor pursuant to his furnishing the requisite performance security, and signing

the Contract Agreement.

8.8. Work Programme

The Contractor shall, within the time stated in the Contract Data, shall submit to the engineer for

approval a Work Programme showing the order and timing of all the activities in the works, along

with monthly cash flow forecasts for the construction of the works. The Programme shall include a

Bar Chart showing the month-wise execution of quantities of principal items of work. The

programme shall be based on the resources and equipment deployed and other efficiency, be

related to the site conditions, be able to show output of activities in the monsoon period, and shall

be designed to provide for periodic updating.

If the progress of work is falling significantly behind scheduled, the Contractor shall produce, at the


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request of the Engineer, a revised programme showing modifications to ensure completion of the

works within the Time of Completion. Impliedly, the revised programme will contain all the

supporting details of revised resources.

8.9. Methods Statement

The Contractor shall provide a general description of the arrangements and methods he proposes

to adopt for the execution of the works for the approval of the Engineer before commencement of

the works. These would include major activities like site clearance, setting out, details of borrow

areas, embankment construction, excavation, blasting, disposal of unsuitable materials, crushing of

stone material, flexible pavement layers, soil-stabilised layers, cement concrete pavement,

concreting for bridges, formwork for bridges, reinforcement for bridges, RCC pipe culverts,

expansion joints, railings, retaining walls, breast walls, drains, environmental safeguards and safety

measures during construction.

8.10. Duties and Powers of the Engineer

The Employer in the PMGSY contracts is the State Government which employs the Contractor to

carry out the works.

The Engineer is the person named in the Contract Data and appointed by the Employer to

supervise the execution of the Works and administer the Contract. He may delegate (in writing with

copy to the Contractor) duties and/or authority to the Engineer’s Representative.

The duties and powers of the Engineer are stated in the Conditions of Contract. These include :

1. Approval of Contractor’s Works Programme

2. Approval of Contractor’s Methods Statement

3. Approval of setting out of Works

4. Issue of Working Drawings

5. Approval of Temporary Works

6. Approval of Quarries, Borrow Areas and Materials

7. Approval of Traffic Diversion Plan

8. Giving order to commence the Works

9. Supervision of Works, approval of quality, acceptance of workmanship and


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supervision of maintenance works

10. Conduct independent Quality Control tests

11. Issue of site orders

12. Ordering removal and substitution of improper work and materials

13. Measurement and valuation of Works for interim payment and final payment

14. Issue of certificates accepting the Works as substantially complete and accepting the satisfactory completion of the maintenance period

15. In consultation with the Employer, to

(i) consent subletting any part of the Works

(ii) determine any extension of time

(iii) issue variation orders

(iv) fixing rates or prices

16. To monitor the progress of works

17. To advise the Employer on all matters relating to claims from the Contractor

18. Verify and correct “as-built” drawing supplied by the Contractor

8.11. Records

The Engineer shall maintain all records in the forms prescribed. Some sample forms are attached

in Annexure 8.1 as under:

1. Inspection Request Form (Form 1)

2. OK Card (Form 2)

3. Site Instruction Form (Form 3)

4. Variation Order (Form 4)

5. Variation Order Register (Form 5)

6. Daily Report (Form 6)

7. Daily Summary Report (Form 7)

8. Progress Monitoring Chart (Form 8)

9. Site Memo (Form 9)

10. Measurement Book (Not attached)

8.12. Sub-Contracting


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The Standard Bidding Document permits sub-contracting up to 25 percent of the contract price with

the approval of the Employer.

Beyond what is stated in the Standard Bidding Document, if the Contractor proposes to sub-

contract any part of the work because of some unforeseen circumstances, the Employer may

consider the request, acting upon the advice of the Engineer. The Engineer shall satisfy himself

before recommending to the Employer about the circumstances warranting such sub-contracting

and the capability of the sub-contractor in performing the Works to be sublet.

A list of approved (and rejected) subcontractors shall be maintained by the Engineer and kept up-

to-date.

8.13. Delays and Extension of Time

The Contractor may experience delay due to his own action or inaction or other causes. Such

delays attract various actions under the contract including extension of time, damages and

determination of the contract.

While examining the request of the Contractor for extension of time, the Engineer shall consider

the circumstances to see whether

(i) Force Majeure applies, viz, act of God, adverse weather, floods etc

(ii) Delay is compensable (Engineer not giving timely decisions, payments being delayed, unforeseen site conditions etc)

(iii) Delay is inexcusable and is due to Contractor’s own lapses

The Engineer must record all reasons for delay.

Extension of Time (EOT) can be granted upon request by the Contractor, after the Engineer

considers the causes for the delay. All requests for EOT should be dealt with promptly during the

progress of the contract. The Engineer should determine the amount of extension and advise the

Employer accordingly. The Employer then notifies the Contractor about the granting of EOT.

8.14. Payments and Certificates

At a pre-arranged date each month, the Contractor shall submit a statement in the prescribed form

showing the amounts to which the Contractor considers himself entitled upto the end of the month.

The Engineer shall check the statement with reference to the work actually done, determine the


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recoveries to be done, examine the price adjustments and certify the monthly payment as Interim

Payment Certificate. The certificate is sent to the appropriate authority for approval and

subsequent payment.

The Final Payment Certificate shall be issued after the Contractor has submitted the final

statement of the value of work done by him and any further sums due to him, and a written

discharge confirming that the total of the Final Statement represents full and final payment due to

him.

8.15. Variations

Variations include :

(i) increase or decrease in the quantity of any work included in the contract

(ii) change in the character or quality or kind of any work

(iii) omission of any work

(iv) additional work of any kind necessary for the completion of Works

(v) change in levels, lines, position and dimensions of any part of the works

(vi) change of the specified sequence or timing of construction of any part of the works.

All variations are to be ordered in writing as per prescribed forms (see para 8.10), and are to have

the approval of the Employer.

Variations and new works involving extra cost shall be valued as per the relevant Clause of the

Contract.

The Engineer shall take the following steps :

(i) to form an assessment as to the applicability of the rates in the BOQ

(ii) to use BOQ rates if considered applicable

(iii) if BOQ rates are not considered applicable, to use the BOQ rates as the basis for valuation

(iv) to consult the Employer and Contractor to try and agree on suitable rates, and if necessary, by developing new rates from first principles

(v) if there is disagreement, to fix appropriate rate provisionally for monthly


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certification

8.16. Notices to Contractor

The following are the important occurrences where the Engineer gives written notices to the

Contractor :

1. Note to Proceed with the Work (Commencement of the Work).

2. Slippage in the Contractor’s Approved Works Programme, and unsatisfactory progress

3. Subcontractor not on approved list

4. Variation in work

5. Safety and environmental violation

6. Matters requiring immediate action by Contractor

7. Unsatisfactory workmanship/ materials

8. Use of sub-standard mechanical plant/ equipment

8.17. Claims

Claims may arise from the Contractor due to various reasons.

The Contract sets out a procedure for dealing with claims. Claims procedure prescribes time limits

for notification and substantiation of claims and requires proper records to be kept. If proper

records are not kept, the Contractor may be limited in his entitlement.

The Contractor is required to give notice to the Engineer within specified days of occurrence of the

event, giving rise to the claim.

A register of all claims shall be maintained. The Engineer shall examine the admissibility of the

claims and give his recommendations to the Employer.

8.18. cost over-run and financial management

Under the PMGSY programme, no excess over the sanctioned project cost is allowed, and the GOI

are not liable to reimburse the excess cost. The State Government shall have to bear the excess

cost from their own resources.

Irrespective of who bears the excess cost, the State must make every effort to ensure that cost

over-runs do not take place. The following precautions may be taken:


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1. The estimates shall be prepared after full investigations and survey. The quantities of various items of work should be very carefully arrived at. The earthwork quantities should be based on Longitudinal Sections and Cross Sections, prepared after careful levelling. The classification of excavation (into ordinary soil, ordinary rock and hard rock) should be based on trial pits. For bridges, the foundation depths should be decided only after borings or trial pits are done.

2. No change in the design of the pavement or structures shall be permitted.

3. The supervising engineer shall keep a close watch on the quantities executed and shall bring to the notice of the higher authorities any chances of quantities exceeding the estimated quantities. Any review of the scope of the work shall be done only with the knowledge and approval of the MoRD.

8.19. Supervision By Consultant

If the supervision is to be done by Consultants, the Terms of Reference for the Consultants should

clearly define their role, duties and responsibilities.

During execution, detailed working drawings (good for construction) have to be prepared and

issued to the Contractors. If a supervision consultant is appointed, his Terms of Reference should

clearly state whether he has to prepare these working drawings and issue to the Contractor.

8.20. “As Built” Drawings

At the end of the Construction, “as-built” drawings have to be prepared by the Contractor. These

should be checked by the supervising agency.

8.21. Road Safety

8.21.1. Since Rural Roads are generally low traffic volume roads and accident rates are presently

quite low, safety issues relate mainly to design and construction features and road safety

consciousness of local residents. At the Central level, these issues will be addressed through

coordination with the Road Safety Mission of the Ministry of Road Transport & Highways. At the

State level, the State Quality Coordinator at State level and the Head of the DPIU at District level

shall be tasked by the State Governments to coordinate with the State Governments road safety

mechanisms and programmes, in particular through membership of the State Road Safety Council

and district Road Safety Committees respectively created as per provision of Section 215 of the


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Motor Vehicles Act, 1988 (Act No. 59 of 1988).

8.21.2. As part of the Rural Road development and maintenance programmes, the State

Government shall ensure road safety audit of construction work along with quality monitoring. It

shall also ensure adequate involvement of Panchayat Raj Institutions in road safety awareness

programmes. Awareness raising activities including publication of pamphlets, audio-visuals,

interactive programmes etc will be funded on the basis of annual proposals to be forwarded for

clearance of the Empowered Committee along with the road proposals.

8.22. Termination of contract

The Employer may terminated the Contract if the Contractor causes a fundamental breach of the

Contract. Fundamental breach of the Contract shall include, but shall not be limited to, the

following :

(a) the Contractor stops work for 28 days when no stoppage of work is shown on the current Programme and the stoppage has not been authorised by the Engineer;

(b) the Contractor is declared as bankrupt or goes into liquidation other than for approved reconstruction or amalgamation;

(c) the Engineer gives Notice that failure to correct a particular Defect is a fundamental breach of Contract and the Contractor fails to correct it within a reasonable period of time determined by the Engineer;

(d) the Contractor does not maintain a Security, which is required;

(e) the Contractor has delayed the completion of the Works by the number of days for which the maximum amount of liquidated damages can be paid, as defined in Clause 44.1of the Conditions of Contract;

(f) the Contractor fails to provide insurance cover as required under Clause 13 of the Conditions of Contract;

(g) if the Contractor, in the judgement of the Employer, has engaged in the corrupt or fraudulent practice in competing for or in executing the Contract. For the purpose of this Clause, “corrupt practice” means the offering, giving, receiving or soliciting of any thing of value to influence the action of a public official in the procurement process or in Contract execution. “Fraudulent Practice” means a misrepresentation of facts in order to influence a procurement process or the execution of a contract to the detriment of the Employer and includes collusive practice among Bidders (prior to or


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after bid submission) designed to establish bid process at artificial non-competitive levels and to deprive the Employer of the benefits of free and open competition.

(h) if the Contractor has not completed at least thirty percent of the value of construction work required to be completed after half of the completion period has elapsed;

(i) if the Contractor fails to set up a field laboratory with the prescribed equipment, within the period specified in the Contract Data; and

(j) any other fundamental breaches as specified in the Contract Data.

Notwithstanding the above, the Employer may terminate the Contract for convenience.

If the Contract is terminated, the Contractor shall stop work immediately, make the site safe and

secure, and leave the Site as soon as reasonably possible.

8.23. Monitoring Delays

To ensure periodic monitoring of the packages being tendered and the execution of the works

tendered, PIUs shall send monthly reports to the Executing Agency. The consolidated state-wise

report shall be sent each quarter to NRRDA.

Annexure 8.2 contains standard formats for the monitoring of delays in award of contracts and

delays in execution.

Format 1 & 2 : For monitoring delay in award of contracts and execution, respectively

Format 3 : For closely monitoring the packages not awarded even after the delay of 90 days

Formats 1A, 2A and 3A : Quarterly abstract of delays to be submitted to NRRDA by the 10th day in the months of July, October, January and April.


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CHAPTER 9

Role and Functions of STAs and PTAs

9.1. background

The PMGSY is a programme involving huge investments and represents a major step-up in Rural

Road activities. The MORD perceives this as an opportunity to bring about a close collaboration

between the engineering colleges/ technical institutes and the Rural Roads sector. Over the years,

the engineering colleges/ technical institutes have grown into centres of excellence imparting

education, and at the same time taking up R&D studies. Recognising the vast potential and

reservoir of knowledge resting in these bodies, the MORD has devised a scheme to utilise this

potential to the benefit of PMGSY. Two levels of coordination have been envisaged, viz,

1. State Technical Agencies (STAs)2. Principal Technical Agencies (PTAs)

9.2. Stas and ptas

The STAs are certain engineering colleges/ technical institutes which have been identified in

various States (in consultation with the States) to act as catalizing agents in the State level Rural

Road programme. These agencies are expected to improve the management and execution at the

field level. A list of STAs identified so far is given in Annexure 9.1. The list may be expanded in

some States, particularly those having an annual allocation of Rs. 75 crores and above.

PTAs are premier technical institutions having in-depth knowledge of the technology of road design

and construction and therefore, able to provide additional R&D and training inputs. The list of PTAs

is given in Annexure 9.2.

9.3. Role and Responsibility of State Technical Agencies (STAs)

State Technical Agencies are envisaged as catalysing agents in the State Level rural road

programme, in order to improve the management and execution at the field level. Accordingly their

functions include:

(a) Verification of the District Rural Roads Plan prepared by the district Programme Implementation Unit


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The verification will include:

• Checking of correctness of existing links

• Checking of new proposed links in terms of the Road Index parameters laid down by the District Panchayat

• Ensuring that all necessary coding and indexing has been done to enable extraction of the Core Network.

(b) Post-Scrutiny of the Core Network

The State Technical Agency will, after finalisation of the Core Network by the District Panchayats, conduct a 100% review (suitably phased) in consultation with the DPIUs in order to help locate deficiencies, if any, in the Core Network with the objective of achieving a standard suitable for a GIS application.

(c) Scrutiny of the Detailed Project Reports for road works prepared by the District Programme Implementation Units

The scrutiny by STAs of project reports shall be a thorough and detailed one in order to ensure that geometric and physical design is appropriate and economic, that the specifications are adequate and based on site conditions, that the estimation of quantities is accurate and reasonable, and that sufficient care has been taken to provide for cross drainage.

(d) Ensuring Economy with Excellence

PMGSY roads are to be of the highest quality and it is the STAs that will have to provide the new inputs into the system to ensure the paradigm shift in terms of proper designing of roads for excellence with economy.

As such STAs while scrutinising DPRs must

• Ensure that mere time constraint does not interfere with proper scrutiny. They should liaise with DPIUs to ensure adequate time.

• Ensure that each DPR is made on the basis of thorough field investigation. If necessary additional data may be asked for.

• Check that the basic parameters viz, traffic and CBR are properly estimated.

• Determine that the design is really appropriate and there is not overdesigning.

• Investigate that all possible economies on use of materials, including soil stabilisation measures, use of alternate material like flyash/ industrial waste etc have been fully explored and used appropriately wherever possible.


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If these interventionist or activist measures are properly and sincerely adopted by STA after seeking the cooperation of DPIUs, the STAs will be doing a real service to the road sector and the nation, since more good roads can be built with same outlay.

(e) Provision of requisite technical support to the State/ District Units

The District Programme Implementation Unit (DPIU), if required may take the advise of the STA in design of works involving special problem. The DPIU will associate the STA in all cross drainage design works where the proposed structure involves a span exceeding 25 metres.

The STA would normally not be involved in routine monitoring of execution of work. However in case of works involving new or innovative features or with R&D components, the DPIU may take the technical services of the STA in studying the benefits of such innovations and to make general recommendations on their utility.

(f) Undertaking normal tests of parameters for road design and Quality Control tests for District Programme Implementation Units and State Quality Control Mechanism

The STA laboratories would be available for conducting tests necessary for design and quality control. The DPIU and the SQM would liaise with the STAs for the tests. Samples may also be sent by NQMs for testing through the DPIUs.

The STA will also liaise with other engineering institutions in the area in order to maintain information regarding whether testing facilities in such institutions are available so that routine testing for design and estimation could be done at such locations as well.

(g) Training

The training modules designed by Principal Technical Agencies (PTAs) will be operationalised by STAs who will draw resource personnel from their own as well as other suitable technical institutions. The STAs will conduct training, evaluate feedback and suggest future training needs. The training may include both routine and refresher programmes as well as specific technical programmes of local or special relevance.

The STAs may also prepare audio-visual training material for dissemination and use under the overall specifications and guidance of State Technical Agencies.

(h) R&D Monitoring

Research & Development activities will be carried out by STAs under the direction of PTAs. STAs may be associated with specific projects in terms of implementation, monitoring and feedback, and in terms of general evaluation on behalf of the PTA.


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SATs and PTAs have well defined roles under the PMGSY to achieve good quality Rural Roads at an economical cost. They are also expected to facilitate training of personnel and foster the greater use of innovative practices.

STAs are most welcome to identify active research projects after consultation with the DPIUs. Such projects should be aimed as using locally available materials or locally relevant designs with a view to effecting economy. NRRDA will give 100% funding support to such proposals. Research work will be executed through DPIUs as a port of the PMGSY and the STA will monitor/ advise the DPIU and document and report the research project.

(i) Technical Advice

STAs may be associated by State Governments with all activities concerning the rural road sector. The nodal Department as well as the State Agency should maintain close liaison with STAs and use their resources to provide valuable policy level and technical inputs into the State Government decision making process.

State Governments may also, if required, commission studies through STAs on issues such as traffic patterns, road designs, quality control, maintenance etc. STAs may however not be associated with day to day operational issues.

PTAs would utilise STA inputs for determining R&D activities, training requirements etc.

9.4. The Role and Responsibilities of the Principal Technical Agency

Principal Technical Agencies are premier institutions with in depth knowledge of the technology of

road design and construction. This evolution as agencies managing change in rural road

programme requires them to be involved in Management Development. As such PTAs are

expected :

1. To oversee the activities of the State Technical Agencies (STAs) in the region and advise/ assist in resolving issues that may arise at the time of the scrutiny of Project Proposals of the States.

2. To carry out random checks of the Proposals scrutinised by STAs.

3. To organise Orientation/ Refresher Programmes to the STA Personnel for Proper Scrutiny of Project Proposals.


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4. To identify the type of strengthening required for the Laboratories in the Districts (PIUs) and also at STAs.

5. To advise Project Implementing Units (PIUs) on any region specific issues that will have a bearing on the Design, Construction and Performance of Rural Roads.

6. To design and manage Regional Training Programmes for the Engineers of PIUs and Contractors by developing course material for different training modules and acting as Resource persons/ Institutions.

7. To manage Regional Quality Control System and assist NRRDA with the analysis of Quality Monitoring Reports of State Quality Monitors (SQMs) and National Quality Monitors (NQMs). It will also help in identifying and resolving the issues arising out of Quality Monitoring System.

8. To evaluate specifications, practices and the use of locally available materials for making the proposals Cost Effective.

9. To formulate design specifications for new and innovative technologies.

10. To study the gaps in the existing practices in Rural Roads Construction and to identify areas for R&D. The PTA also assists NRRDA in processing the R&D Proposals and entrusting the same to reputed organisation.


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CHAPTER 10

Quality Assurance

10.1. high Quality Expected on PMGSY Works

The roads constructed under this Programme are expected to be of a very high standard, requiring

no major repairs for at least five (5) years after completion of construction. In order to realise this

objective, suitable clauses relating to Performance Guarantee/ routine maintenance shall be

included in the Contract Documents, as per the provisions in the Standard Bidding Document. In

particular, the State Government shall obtain a Bank Guarantee from the Contractor for 10% of the

value of the work, which should remain valid for the 5 year period and should be discharged only

after consulting the Panchayati Raj Institution responsible for maintenance.

10.2. Quality Standards

Road works under PMGSY are designed and constructed to standards prescribed in the Rural

Roads Manual. In order to ensure this, the NRRDA have published its Quality Control Handbook,

which brings out the mandatory testing required to be done at various stages of the construction

process. The Handbook contains the following :

• Quality Control Requirements

• Equipment for Tests

• Procedures for Quality Control Tests

• Register of Tests

• Drainage of Rural Roads

• Third Party Inspections

The implementation of the provisions of the Quality Control Handbook is recorded in Quality

Control Registers maintained at the works level. Proper quality testing and recording is an essential

feature of PMGSY which believes that relentless testing and meticulous quality control is the only

way to build good roads.

10.3. Three-Tier Set up For Quality Assurance


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10.3.1. Ensuring the quality of the road works shall be the responsibility of the State Government/

Union Territory Administrations, who are implementing the Programme. To this end, all works will

be effectively supervised. The Quality Control Register prescribed by the NRRDA to operationalise

the provisions of the Quality Control Handbook shall invariably be maintained for each of the road

works. Payment shall not be made to the Contractor unless the test results have been found to be

satisfactory.

10.3.2. A three-tier Quality Control mechanism is envisaged under the Pradhan Mantri Gram

Sadak Yojana. The State Governments would be responsible for the first two-tiers of the Quality

Control Structure, and would also bear the cost of the two tiers at the District and the State level.

The DPIU or the Executive Engineer will be the first tier, whose prime responsibility will be to

ensure that all the materials utilised and the workmanship conform to the prescribed specifications.

He is responsible for all mandatory quality Control tests. He shall also ensure that all the tests

prescribed by the National Rural Road Development Agency, are carried out at the specified time

and place by the specified person/ authority.

10.4. First Tier

10.4.1. As per the Standard Bidding Document, the Contractor is responsible for establishing the

Quality Control laboratories and getting the tests conducted. The following mechanism shall be

followed in respect of tests at the level of the first tier.

(i) All the tests shall be conducted by the designated staff of the Contractor. The test results shall be recorded in the Quality Control Registers prescribed, and shall be maintained for each of the road works. The registers shall be in two parts, viz,

Part I : Quality Control Register – Record of Tests

Part II : Record of Abstract of Tests and Non-Conformance Reports

Register Part I shall be maintained by the officer in charge of basic quality control testing, not below the rank of Junior Engineer.

Register Part II shall be maintained by the Site Officer in charge, not below the rank of Assistant Engineer.

(ii) 50 percent of the tests should be conducted in the presence of the in-charge JE of the work and the JE should record his observations in the Quality


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Control Register, Part I.

(iii) 20 percent of the tests shall be conducted in the presence of the AE in charge of the work and he should record his observations in the quality Control Register, Part I.

(iv) 5 per cent of the tests shall be conducted in the presence of the EE/PIU in charge of the work, and the EE/PIU should record his observations in the Quality Control Register, Part I. The EE/PIU will also see that the non-conformance reports are issued in time and timely action is taken by the Contractor.

(v) The SE, during his visits to the work, will oversee the Quality Control Tests and record his observation in the Quality Control Register, Part I. The SE will also see that the non-conformance reports are issued in time and action is taken by the contractor in time.

(vi) The Chief Engineer (CE), during his visits to the work, will oversee the Quality Control Tests and shall record his observation in the Quality Control Register, Part I. The CE will also see that the non-conformance reports are issued in time and action is taken by the Contractor in time.

10.4.2. In case the Quality Control tests are conducted by the Department/ PIU, the tests will be

conducted by the staff of the Quality Control laboratory, but the check mechanism given in paras

9.2.4 (ii) to (vi) will also apply in such cases.

10.4.3. The monthly return of the tests shall be submitted in the prescribed Proforma (Annexure

10.1) by the AE to the EE in the first week of every month. The EE will review this return regularly

to see that the Quality Control tests are being performed at the desired frequency and with the

desired accuracy. The EE will also see that the non-conformance reports are issued by the AE

whenever non-conformance occurs and the Contractor shall promptly take actions on non-

conformance reports. The payment to the Contractor shall be regulated as per the returns of the

Quality Control tests.

10.5. Second Tier

10.5.1. At the Second-tier of the Quality Control Structure, periodic inspections of Quality Control

Units of works will be carried out by Officers/ Agencies engaged by the State Government,

independent of the Executive Engineers/ PIUs. The State may designate any agency for this work

or may engage retired officers of the level of Executive Engineer and above. These Officers/


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Agencies would be expected to carry out random tests and also get representative samples of

materials tested in laboratories of the State Government as well as, in certain cases, independent

laboratories, say those of the State Technical Agencies. The State Governments will issue the

requisite guidelines in this regard. The following process may be adopted for quality monitoring at

this level.

(a) There should be a State Quality Control (SQC) unit of the rank of the Superintending Engineer (SE) or above. The functions of the Coordinator in respect of quality control should be as follows :

(i) To coordinate and supervise first tier Quality Control arrangement.

(ii) To coordinate and control the activities of State Quality Monitoring arrangement, and ensure compilation of action on the reports of State Quality Monitors.

(iii) To facilitate and coordinate the activities of the National Quality Monitoring arrangement and ensure compilation of action on the reports of National Quality Monitors.

(iv) To prepare monthly abstracts of SQM visits and an Annual Quality Report based on the Reports of SQMs and NQMs and action taken thereon.

(b)

The PMGSY programme envisages a high level of quality of works. For this purpose, a three-tier of quality control has been prescribed. A Quality Control Manual has been brought out, and District Level laboratories are proposed to be set up with central aid.

State Quality Units/ Monitors (SQM) should be set up/ engaged by the State Government to oversee the quality in the programme Districts. These monitors should be independent of the Executing agency and should report to the State Quality Control Coordinator. Quality Control organisations, agencies or individuals who have experience in Quality Control of road works can be engaged for this purpose. The SQMs shall carry out inspection systematically in such a way that every work is inspected twice during construction and once after completion.


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(c) The programme for SQMs should be drawn up in such a way that every work is inspected at-least two times. The first inspection of every work should be carried out during the execution of work and the second inspection should be carried out on the completion of every work, but not more than one month thereafter.

(d) The SQC may draw up a monthly Schedule of Monitors (Block/ Panchayat wise) so as to ensure systematic coverage. A well defined system should be formulated to monitor the compliance of the observations of the State Quality Monitor.

(e) The SQM should be given a detailed format for the inspection report which should cover the following aspects.

(i) Design of pavement and CD woks.

(ii) Provisions made in estimates.

(iii) Management of the contract, deployment of qualified staff by the contractor and establishment of Quality Control Laboratory by the contractor.

(iv) Construction programme and progress of work.

(v) Execution methodology and adherence to specifications.

(vi) Arrangement at Quality Testing Laboratories.

(vii) Record of Tests – Quality Control Registers and their upto date maintenance.

(viii) Accuracy of Quality Tests, issuance of non conformance reports (NCR) and action of contractor on NCRs.

(ix) Inspection of departmental officer/ SQMs or NQMs and compliance of the instructions.

(x) Provision and execution of CD works and side drains.

(xi) Road furniture, Logo and Signboards.

(xii) Timely payment to the contractors.

(xiii) Other issues including the technical knowledge of the staff of the executing agency and the contractor.

(f) The State Quality Coordinator may send the monitor’s reports to the Project Implementing Unit with a copy to the CE/SE. Compliance reports should be routed to the SQC through the CS/SE. All cases of delay in reporting compliance and major cases of deviation from acceptable quality should be taken seriously. State Governments may adopt a four level classification for quality ‘Poor’, ‘Average’, ‘Good’


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and ‘Very Good’ similar to the NQMs, in order to ensure uniformity of approach and evaluation.

(g) The NQMs may hold Meetings with PIUs and the Contractors and inspect Field/ District Laboratories to ensure smooth functioning of the Quality Control Mechanism.

(h) The SQCs/ SQMs should also interact with the State Technical Agencies in matters relating to the design, testing and execution.

(i) Each month, the SQC will compile an abstract of the SQM visits giving the District-wise gradings and send copies to the DPIU, CE, Nodal Department and NRRDA in the prescribed Format (Annexure 10.2).

(j) The State Quality Control Coordinator should send an Annual report to NRRDA through the State Nodal Agency comprising the analysed performance State Quality Monitoring System in a prescribed format. The analysis should include the SQM reports, NQM reports, Action taken in individual cases and systematic deficiencies detected and remedied.

(k) The Annual Quality Report will be forwarded to the NRRDA, the STAs concerned and the PTA for the State. The PTA shall analyse the Report, and thereafter such further study and field visits as may be necessary, with the approval of NRRDA, shall make recommendations on action to be taken at system and organisational level to improve quality of constructed roads and the programme performance in general.

10.5.2. Supplementary guidelines on quality control will be issued from time to time by the

NRRDA. It has however been noticed during reviews with the State Executing Agencies that

adequate quality consciousness is yet to take hold among the PIUs. In a few States, SQC have not

been appointed, DPR quality is not being checked, and in many States where SQCs have been

appointed, the second-tier of quality control has not been property constituted and prompt action

has not been taken on reports on National Quality Monitors.

10.5.3. Quality Assurance at DPR Stage

Taking cognisance of the views put forward by State Executing Agencies that for conducting

accurate surveys and soil and materials tests, laboratory testing facilities need to be properly

provided, it has been decided to provide a one-time assistance for the replacement/ upgradation of

District level and Mobile Laboratories as follows:

• The State Executing Agency will forward a consolidated proposal after joint


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assessment with the State Technical Agency (STA).

• The equipment will be basic and functional equipment, in accordance with the Rural Roads Manual and Quality Control Handbook issued by NRRDA.

• In case of mobile laboratory equipment, the cost of the vehicle and its POL and operating costs will not be paid out of this assistance and the State Government will have to certify that adequate budgetary provisions will be made for the concerned PIU for the purpose.

• The cost of the equipment shall not exceed Rs. 4 lakh per District.

It may be noted however that the sanction of the assistance is conditional on

• The State Government formally adopting the Standard Bidding Document (which inter alia provides for contractors field testing laboratories and maintenance of Quality Control Registers at works level).

• The setting up of a satisfactory and operational quality control mechanism at the first and second tier. A detailed note on this aspect should accompany the proposal.

10.6. Third Tier

10.6.1. As the third tier of the Quality Control Structure, the NRRDA is engaging independent

National Quality Monitors (NQM) mostly retired Senior Engineers with State/ Central Organisations.

The NQMs are given the programme of inspection for very month indicating the Districts (and

Blocks) to be visited. The inspection of National Quality Monitors is programmed in such a way that

they are allotted the inspection of the States adjoining the States from where they retired. The

NQMs are given three Districts every month, where they are required to carry out inspection of ten

to twelve works spending about three days in every district. About 2-4 works shall be inspected

each day. Format for inspection report of the Monitors has been prescribed and the NQMs shall

submit the copy of the report to the State Government as well as NRRDA. The NQMs are also

expected to interact with the SQCs and State Technical Agencies, where convenient. Annexure

10.2 gives Guidelines of NQMs. Instructions have also been issued to the States dealing with the

visits of NQM. These are given in Annexure 10.3. Annexure 10.4 gives detailed instructions to

NQMs about the inspections to be carried out.

10.6.2. Main Functions of NQMs


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The main functions of NQMs are :

• To function as Independent Monitors at the third tier in overseeing the quality of PMGSY works;

• To carry out periodic inspections of works at the prescribed frequency as per Guidelines issued by NRRDA (Annexure 10.4).

• To send their reports in the prescribed formats accompanying the Guidelines issued by NRRDA (Annexure 10.3).

• To discuss the main observations regarding quality of works with the DPIU/ EE and the SQC and other senior officers of the State Government, with a view to bring about desirable improvements.

• To provide for the State authorities and the NRRDA an unbiased account of the quality of works and conformance to specifications.

• To give their observations on various technical points pertaining to the work.

The format of the Reports to be submitted by NQMs have been standardised to bring in a certain

degree of uniformity and to facilitate a better and quicker analysis as well as aggregation. The

Report shall contain :

• A Quick Response Report which shall cover all works inspected, to be sent before the 18th (for the first fortnight) and the 3rd (for the second fortnight) of every month.

• Report on each work inspected, including Grading of the works, under “Poor”, “Average”, “Good” and “Very Good”.

10.6.3. Interaction of PIUs with NQMs

The NQMs shall inform the SQC about the programme of inspections for the month, whereupon

the SQC shall inform the DPIU of the concerned district about the programme. The DPIU shall

make necessary arrangements for the transport, stay and boarding of the NQM. The PIU shall

furnish to the NQM a list of all works completed and on-going (along with location of the works on

the District Map to facilitate preparation of the tour route), as well as information of date of start of

work, date of earlier visits of NQM/ SQM to that road, grading and date of rectification and current

stage. All essential records of works selected for inspection shall be made available to the NQM.

Arrangements shall also be made for carrying out Quality Control Tests at the Contractor’s field


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laboratory, mobile laboratory or district laboratory. The NQM shall hand over a copy of the

Inspection Report to the PIU (or the senior most officer present at the site) for immediate

necessary action. The NQM may discuss the issues arising out of the inspection with the PIU.

Unless the PIU disagrees with the conclusion/ recommendations of the NQM, rectification work

shall be ordered immediately. In case the PIU feels that any portion of the Inspection Report or the

suggested rectification is not appropriate, he shall make a full report to the SQM. The NQM is also

encouraged to discuss his findings with the SQCs and other senior officers of the State

Government with a view to bring about desirable improvements.

10.6.4. Inspection by NQMs

The NQMs are engaged by the NRRDA to carry out the inspection of PMGSY works. Letter of

request for inspection will be sent every month to the NQMs. This shall indicate the State, District

and Blocks where the inspection is desired. After receiving the letter of request, the NQM shall

indicate the Tour Programme by the 10th day.

The NQMs are required to inspect three districts in a single visit of one State every month. They

may spend not more than 3 days in each district, inspecting normally between 2-4 works on each

day.

The inspections should strictly cover the allotted Blocks. If for any reason, the allotted Blocks do

not have any works, NQM may choose other Block(s) for inspection. But this deviation should be

only in exceptional cases and the reasons why the works in the allotted Blocks could not be

inspected shall be recorded in the Inspection Report.

The approved Inspection Programme is valid for only the month mentioned in the letter of request;

therefore, in no case shall the inspection spill over to the next month.

The PIU shall provide the NQM all relevant details of the works to be inspected.

While selecting the works, for inspection, the NQM will prioritise as under:

1. First Priority shall be given to works which are completed and have been graded as “poor”, “Average” or “Good” by other NQMs after their completion. The inspection will bring out the efforts made by PIU to rectify the defects.

2. The Second Priority should be given to those completed works which were


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inspected by NQMs/ SQMs, but were graded as less than “Good” while work was in progress. In such cases, the NQM shall see what action has been taken on the observations of NQMs/ SQMs.

3. The Third Priority will be given to completed works that have never been inspected before.

4. The Fourth Priority shall be given to other on-going works which have not been inspected or which were not found “Very Good” at an earlier stage.

The NQMs shall not inspect any work which has not been started and sufficient work to check the

quality has not been done.

The detailed guidelines for inspections are given in Annexure 10.4 and 10.5.

10.6.5. Analysis of NQMs Reports

The analysis of the observations by the NQMs is an extremely important aspect and must be

prepared with care, bringing out systematic deficiencies/ shortcomings and suggestions for

improvement in :

− Design and Estimation − Execution and Supervision − Quality-Control − Contracting etc.

The analysis of the reports of the NQMs is done at NRRDA and the States are requested to take

appropriate action on the report of the National Quality Monitors as quickly as possible. A monthly

abstract is prepared in a format similar to the one for SQMs and circulated to all States.

10.6.6. Action to be taken on National Monitors Reports : The action on the reports of National

Quality Monitors may be taken in the following manner.

(a) The NRRDA will after scrutiny forward a copy of the Individual Inspection Reports along with the National Quality Monitors report to the SQC.

(b) On receipt of the report of the National Quality Monitors the State Quality Control Coordinator will immediately forward the Inspection Report to the Project Implementing Unit/ Executive Engineer for taking action on every paragraph of the report. He will also initiate action on the general issues brought out by the National Quality Monitors in his analysed report.


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(c) The Executive Engineer/ Project Implementing Unit will start the action and send the paragraph wise Action Taken Report (ATR) to the QC Coordinator. The standard format is given in Annexure 10.5.

(d) The Quality Control Coordinator will compile the Action Taken Reports in the prescribed format and forward it to NRRDA along with comments/ action taken on the general suggestions made by the NQM. The Action Taken Report for the works inspected during the month should be sent to NRRDA by last week of the following months. If the action suggested in the report takes more than one month time, that date should be specified on which the action is likely to be completed. The intimation should also be sent to NRRDA when the action has been completed.

(e) In case there is disagreement with the finding/ recommendation in an National Quality Monitors Report, this should be communicated as part of the Action Taken Report sent by the DPIU through the State Quality Coordinator.

10.7. Quality Control Laboratories

The States are required to establish the Field Level Quality Control Laboratories and district Level

Laboratories as per the provisions of the Rural Road Manual. The laboratories are required to be

provided with the equipments and trained staff. The Laboratories of Engineering Colleges and

other institutions should also be used for higher level of Quality Control Testing. For meeting the

requirements of testing, the State Governments may empanel the laboratories of such institutions

and may also fix the rates for conducting different tests. The training and staffing of the

Laboratories should be done by the State Governments.

Regular training Programmes should be organised for the staff of laboratories also to ensure

effectiveness of testing process and accuracy of results.

10.8. Training

The SQCs shall look after the training needs of the PMGSY staff, drawing up an annual

programme of training at various institutions such as the NITHE, CRRI, State Training Institutes,

Engineering Institutes etc.

10.9. Investigation of Complaints

The SQCs shall also look into the complaints received from various quarters about the poor quality

of work, investigating into the complaints, bringing out the clear facts, and placing the findings


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before the higher authorities for appropriate action. Ensuring the quality of works is one of the

basic requirements of PMGSY road projects. To achieve the desired level of quality, the public can

play a key role as they are watching the works closely. They can lodge complaints if they see any

compromise in the quality taking place. The State Quality Coordinator/ Head of Programme

Implementation Unit shall be the authority to inquire into such complaints. The name and address

of the SQC shall be given wide publicity in the State. All complaints will be registered and

acknowledged by the SQC who will then request the DPIU to inquire into those, and, if necessary,

depute a SQM. Complaints received through the MORD/ NRRDA will also be acknowledged,

registered and inquired into. The outcome of the inquiry and the action taken/ proposed shall be

intimated to the complainant. If, in respect of complaints received through the MORD/ NRRDA, no

response is received within the stated time schedule, the NRRDA will depute an NQM to look into

the matter and take action on the basis of the NQM’s report. The SQC shall make a monthly report

to the State Nodal Department/ State Rural Roads Agency in the prescribed form (Annexure 2.9).

The status of action taken on complaints shall be discussed as an Agenda item of the State level

Standing Committee, a copy of the proceedings of which shall be sent to the MORD.


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CHAPTER 11

Monitoring

11.1. monitoring Mechanism

11.1.1. Effective monitoring of the Programme being critical, the State Governments/ UT

Administrations will ensure that the officials are prompt in sending the requisite reports/ information

to the State level Agency as well as the NRRDA. The On-line Management & Monitoring System

will be the chief mechanism for monitoring the Programme. To this end, the officials are required to

furnish, ‘on line’, all the data and information, as may be prescribed by the NRRDA from time to

time, in the relevant module of the On-line Management & Monitoring System. They shall be

responsible for uninterrupted maintenance of the Computer Hardware and Software as well as the

Internet connectivity. The Software for the OMMS shall be supplied by the NRRDA and it shall not

be modified at any level in the State; any requirement or suggestion for change shall be intimated

to the NRRDA. In case of continued failure to update data on the OMMS, further releases to the

State could be affected.

11.1.2. The State Government should provide necessary manpower, space and facilities to set

up the Computer Hardware at the District and State Level apart from ensuring regular and timely

feeding of data. Since most of the data would reside on the State Servers, the State level Agency

must ensure that the State Server is functional all 24 hours.

11.1.3. It shall be the responsibility of Executive Engineer/ Head of the PIU to ensure effective

up-time of the Hardware and also the Internet connectivity, with the State Server and the Central

Server, of the Client Machines at the PIU/ District level. He/ she shall be responsible for the

constant updating and accuracy of data relating to the progress of road works, record of Quality

Control tests as well as the payments made. The data shall be updated as warranted but at least

once a week. He/ she shall also ensure that the photographs and video clips of each road work are

regularly, and at least once every month, uploaded into the System.

11.1.4. Each State Government would identify one officer of sufficient seniority and having

adequate knowledge of Information Technology to function as State IT Coordinator. His/ her


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function will be to oversee the regularity and accuracy of the data being furnished by the Districts.

The IT Coordinator, who shall form part of the State-level Agency, shall also be responsible to

oversee the upkeep of the Hardware and Software as well as the training requirements of the

personnel dealing with PMGSY. He shall maintain close liaison with C-DAC (the software

developers), NIC State Unit/ District Units and the IT Division of NRRDA.

11.2. Operating the On-line Monitoring and Management System (OMMS)

11.2.1. The OMMS is a web-based software developed by C-DAC, which maintains data

regarding habitation, road works, progress of works, expenditure etc in respect of PMGSY. All PIUs

are expected to feed basic as well as programme data into the OMMS from computers provided to

them for the purpose by MORD. Districts which, because of poor connectivity are unable to feed

data on-line may enter data off-line and upload it to the main data base from NIC’s District

Informatics Centre (DIC).

11.2.2. Data Preparation for Clearance/ Release

Since OMMS is an on-line decentralised system to monitor progress, up loading and regular

updating of data by DPIUs is essential. In particular, availability of data is a pre-requisite in respect

of the following :

Sl. No. Item Data Required

1. Clearance of Annual Proposal (a) Full details of road works, habitations to be linked, cost of each work, packaging

(b) Up-to-date progress in respect of PMGSY works of previous years.

(c) SQM Inspection Data

2. Release of Instalments of funds (a) Financial Progress showing requisite expenditure


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(b) Physical Progress showing requisite completion (for 2nd instalment).

11.3. Forms for Reporting/ Supplying Information

11.3.1. Progress of Works Sanctioned During Each Year

The States shall report the progress achieved for PMGSY works sanctioned during each year as

under :

• Works sanctioned during 2000-01 (Form PW-1) • Works sanctioned during 2001-02 (Form PW-2)• Works sanctioned during 2002-03 (Form PW-3)

The forms are given in Annexure 11.1. It may be noted that in case the OMMS data is complete

and accurate, the information is available as an output from the system.

11.3.2.

The PMGSY programme prescribes a close monitoring of the physical and financial progress of works at different levels. It is incumbent on all concerned to follow the procedures laid down.

Analysis of Cost pr Km of PMGSY Works

The States shall submit an analysis of the cost per Km of

PMGSY sanctioned during various years. Forms CP-1, CP-

2 and CP-3 etc shall be used (Annexure 11.2).

Such analysis shall be done once a year.

11.3.3. Report on Projected Completion Plan

The States shall send progress reports on the projected completion plan from among the works

sanctioned during the various years. Forms WP-1, WP-2, WP-3 etc shall be used (Annexure 11.3).

11.3.4. Report on Projects Completed


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The States shall send progress reports on the projects completed from among the works

sanctioned during various years. Forms CW-1, CW-2 etc shall be used (Annexure 11.4). In case

data entry on OMMS is complete, these formats are available as outputs of the system.

11.4. Monitoring At DPIU Level

The DPIU is expected to keep a close watch on the progress of the works. He will maintain full

information on :

1. Contractors (Form DCI) 2. Contractor-wise status report of cost of work done and payments made (Form DCS) 3. List of completed roads (Form DCR) 4. List of completed roads and value of work done (Form DVW)

The prescribed forms are given in Annexure 11.3. The analysis of the data in the prescribed format

will enable the DPIU to monitor the financial and physical progress of the work, identifying the

contractors and the road works which are lagging behind, identify the works where there is a cost

over-run, and take remedial action immediately.

11.5. Monitoring At State Level

The State Autonomous Agency shall closely monitor the PMGSY works on a regular basis. The

monitorying shall be in respect of :

1. Progress of works sanctioned during the year (Form SPW)

2. List of completed works sanctioned during the year (Form SCW)

3. Analysis of Per Km Cost of works sanctioned during the year (Form SCP)

4. Projected Completion Plan for works sanctioned during the years (Form SWP)

5. Status of works under PMGSY for year (Form SSW)

6. Contractor’s Information Report (Form SCI)

7. District-wise Financial Progress report of cost of work done and payment made (Form SFP)

8. Completed Road Information Report (Form SCR)

9. Completed Roads Report with value of work done (Form SVW)

10. Login Information Report (Form SLI)


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11. District-wise rating/ relative position on basis of financial data (Form SRP)

The analysis from these formats will enable the State Autonomous Agency to closely monitor the

work, identify the works which are lagging and the districts which are relatively non-performing. The

data will facilitate the removal of bottlenecks, if any, in the speedy execution if works.

11.6. Monitoring of Progress at MoRD/ NRRDA Level

The progress reports and analysis date received from the States shall be analysed at the National

Level. Forms contained in Annexure 11.4 shall be used for this purpose.

11.7. Monitoring Delays

Since the PMGSY works are time-bound, it is necessary that a close monitoring of the delays is

exercised. The following formats are prescribed for this purpose (see Annexure 8.2).

Format 1 : For monitoring delay in award of the contracts Format 2 : For monitoring delay in execution Format 3 : For monitoring packages not awarded even after a delay of 90 days.

These formats shall be submitted by the PIUs to the State level officials like SEs and CEs. Close

monitoring should be done at State level and the abstract information should be submitted to

NRRDA quarterly by the 10th day in the months of July, October, January and April in the Formats

1A, 2A and 3A respectively.


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CHAPTER 12

flow of funds, procedure for release, Accounting System and audit

12.1. flow of funds

12.1.1. The State-level Agency, identified as detailed out in para 3.3.3 (Chapter 3), shall receive the funds for PMGSY from the MORD. The State-level Agency shall select a branch with internet connectivity at the State Headquarters, of any Public Sector Bank or Institution based Bank for

maintaining an Account of the Pradhan Mantri Gram Sadak Yojana. Once selected, the Account shall not be changed to any other Branch or Bank. There will be a written undertaking from the

Bank that it will follow the Guidelines of Government of India for payments from the PMGSY Funds. The concerned branch will maintain Internet connectivity and enter the data into the relevant

module of the On-line Management & Monitoring System.

12.1.2. The State level Agency will communicate to the NRRDA and to the Ministry the details of the Bank branch and the Account number. The Ministry of Rural Development shall release the

funds only into this Account, on the recommendation of the NRRDA, who shall satisfy themselves that the requirements in the Guidelines have been met.

12.1.3. The State level Agency will maintain only one Account for PMGSY funds, from which all payments will be made. These shall relate to the Programme expenditure on road works. No other administrative expenditure (such as purchase of vehicles and office equipment) shall be debitable

to this account.

12.1.4. The Programme expenditure will be regulated as follows:

1. There will not be separate bank accounts of PIUs for Programme expenditure. As indicated earlier, the Executive Engineers of PIUs/ Heads of PIUs (who are the drawing and disbursing officers of the PIU) will be declared as the ex-officio members of the Agency, so as to enable them to draw on the funds of the Agency from the Programme Account. They shall be Authorised signatories for issuing cheques.

2. The Agency would nominate one of its senior officers, normally the Finance Controller, or an officer not below the rank of a Chief Engineer, as the Empowered Officer. It shall be open only to the Empowered Officer to inform the Bank of the names of Authorised Signatories, for issuing cheques on the Agency’s bank account.


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3. The Empowered Officer will furnish this list of Authorised Signatories (Executive Engineers of Districts/ Heads of PIUs) to the Bank, apart from himself, maintaining a record of it. This list will be periodically verified to ensure its accuracy. The Bank will issue separate Cheque Books to each of the Authorised Signatories, and will keep their signatures on record.

4. The Empowered Officer will also inform the Bank of the names of Authorised Payees (contractors and suppliers with whom Agreements have been duly entered into, as well as Statutory Authorities, such as ITO etc) and their designated payee accounts, and also the amounts that are admissible against each of the Contractors and suppliers. This will be in conformity with the Work Agreements. The Empowered Officer may lay down suitable limits on monthly payments in line with the agreed Works Programme for the respective packages. Standing instructions will be issued to the Bank Branches by the Empowered Officer in this regard.

5. In respect of the head of PIUs, the Empowered Officer shall also declare the PIUs as authorised payees for meeting petty expenditure. Each voucher shall be restricted to rupees One Lakh, and the maximum expenditure in respect of each project road shall be restricted to rupees twenty lakhs.

6. The Authorised Signatories will make payments, as per the established procedure, by Account Payee cheque mentioning the designated payee accounts. They will immediately enter the cheque and payee details in the Payment Module of the OMMS.

7. On presentation of the cheque, the Bank would satisfy itself that the payment details have been entered in the Payment module, and that the cheque meets with all other requirements, among others, like signatures agreeing with specimen signatures, the cheque amount being within the balance authorised limit, and the payee being the authorised payee, payee account details being fully and correctly specified etc.

8.


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The State Level Agency shall maintain only one Account for PMGSY from which all payments will be made. The State shall nominate an Empowered Officer who will inform the Bank of the Authorised Signatories.

The Bank will not allow the funds to be used by any person other than the authorised signatories and for any purpose other than the authorised payment for Works taken up under the PMGSY. Nor will it be open to the State level Agency to invest these funds in any other Bank/ Branch, whether for short or medium term, including under Fixed Deposits.

9. The Bank will render monthly account, in respect of PMGSY Funds, to the PIU, the State level Agency and the National Rural Roads Development Agency by processing the data on the Receipts and Payment Modulus of the OMMS.

10. A tripartite memorandum of Understanding will be entered into between the Bank, State-level Agency and the Ministry of Rural Development wherein the parties would agree to abide by the provisions of the Guidelines. In particular, the Bank will agree to abide by the instructions issued, from time to time, by the Ministry of Rural Development/ National Rural Roads Development Agency (NRRDA) regarding the operation of the Account.

11. Money accruing as Interest will be added to the PMGSY funds. The expenditure out of this interest amount will be guided by the instructions/ guidelines to be issued by the Ministry of Rural Development/ NRRDA from time to time. The Bank shall intimate to the State level Agency as well as NRRDA, the interest amount credited by it to the Account from time to time.

12.1.5. The NRRDA may, from time to time, issue such directives as necessary for smooth flow of funds and effectiveness of the Programme.

12.2. Accounting System

12.2.1. Since the PMGSY funds are now administered by the State-level Agency and are, therefore, outside the Government finances (with no role for the district treasury and the State

Accountant General), it has become necessary to formulate an accounting system capable of on-line monitoring and management. This system has now been developed by the Institute of Public Auditors of India (IPAI), and a software for the accounting system has been developed by the C-

DAC.


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12.2.2. The new system, while retaining the basic structure of the PWD accounting system, incorporates the following changes:

(a) The cash book in the public works division has only ‘cash column’ on the receipt side and ‘cash column’ and ‘bank column’ on the payment side. This is because a public works division does not have a separate bank account; it operates on the treasury balances of the State Government. Since the PIU will work on bank authorisation from the State Rural Roads Development Agency, its cash book would show the authorisation received and utilised and the balance available. The PIU does not have an independent bank account; therefore, its cash book will not have a bank column. Instead, it will have a bank authorisation column. Thus, its cash book will have two columns on the receipt side, namely, cash column and bank authorisation column to show the cash received or the authorisation received. Similarly, its payment side will have two columns, namely, cash column and bank authorisation column to show the cash payments and the cheques issued against bank authorisation.

(b)

A new accounting system with a common chart of accounts, cash book, ledger, transfer entry book etc shall be followed for PMGSY works.

The public works division shows advances given to contractors as expenditure on the works. In the new system, the advances to the contractors would be shown separately as advances. This will mean that there is no variation between physical progress and the payments made for work done and measured. The expenditure on works will show the actual progress of works.

(c) The public works division shows the cost of materials issued for the departmental execution of works as works expenditure. Thus, the figures of works expenditure do not distinguish between works done and material supplied to the contractor. This gives an incomplete picture. Therefore in the proposed system, the material issued shall be debited to the Material at Site account. Such materials on consumption shall be debited to the works concerned by contra credit to Materials at Site account.

(d) Major, Minor and Detailed head of accounts applicable to Government accounts are not mostly applicable to PMGSY works. Therefore, separate account code numbers will exist for the PMGSY accounting system.

(e) The State Rural Roads Development Agency will receive the monthly accounts from


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the divisions and reconcile them with its accounts and also incorporate transactions showing completion of works. PIU will remain responsible for the correctness of the monthly accounts.

(f) The concept of monthly balance sheet does not exist in the Government. The proposed system introduces it for the public works division and the State Level Rural Roads Development Agency.

12.2.3. The MORD have now issued orders for implementing a uniform system of accounting for PMGSY with a common :

• Chart of accounts • Balance Sheet for the Nodal Agency/PIU/State Level • Income and Expenditure Account • Cash Book • General Ledger • Monthly/ Annual Account for PIU • Monthly/ Annual Account for State Level

The formats for the above are enclosed in Annexure 12.1.

The C-DAC has developed the requisite module for it for use on computers and has started imparting training to the staff.

The MORD are working out a system of assigning an additional identity number to works funded by the World Bank.

12.2.4. Separate account records and cash book shall be maintained from programme fund and the administrative fund with effect from 1st April, 2003. The accounts for the past may not be

rewritten but a balance sheet may be prepared for the year ending March 2001, 2001-02 and 2002-03.

Each PIU shall prepare its balance sheet along with the schedule of works expenditure showing road-wise expenditure and submit to Nodal Agency. Bank reconciliation statement shall also be prepared to reconcile the bank balance in the cash book with the Bank.

12.3. Reporting and Monitoring

12.3.1.


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For PMGSY works it is necessary to maintain the progress of expenditure on each of the major activity of the works. This information shall be made available on the OMMS.

The public works accounting system requires a public works division to keep a Register of Works to show the progress of expenditure on each of the major activity (called sub-head) of the works.

Unfortunately, most of the divisions do not maintain it. For PMGSY works, it is mandatory to maintain the progress of expenditure on each of the major activity (called sub-head) of the works.

12.3.2. The C-DAC Pune has already made a provision for this in its software. It requires a public works division to fill, in the prescribed format, the activity-wise details when entries of

payment of the contractor’s claims are made in the online cash book. The following format of abstract of activities is

recommended. This format should be part of the contractor’s claim. Its details are :

(a) Earthwork (b) WBM & hard shouldering work (c) B.T. work (d) Road furnishing work (e) CC Road & Protection wall (f) Cross Drainage work

12.3.3. The balance sheet of the public works division will show the following information :

Liabilities Amount Assets Amount

1. Programme Fund Control Account PIUs

1. Cash Balance (i) Cash in chest (ii) Imprest with Staff

2. Incidental funds generated from interest and net incidental receipts.

2. Bank Authorisation account


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3. Payables (a) Statutory Deductions from contractors/ suppliers (b) Deposits repayable

3. Cheques/ Demand Drafts received by PIUs

4. Purchases-Suspense 4. Cheques/ Demand Drafts Transferred to State Level Rural Roads Development Agency

5. Deposits with State Government (for past balances)

6. Construction of new roads

(a) In Progress (Sch/ F-53) (b) Completed (Sch/ F-54)

7. Upgradation of existing roads

(a) In Progress (Sch/ F-53) (b) Completed (Sch/ F-54)

8. Roadside Plantation (a) In Progress (Sch/ F-53) (b) Completed (Sch/ F-54)

9. Roadside Sign Boards (a) In Progress (Sch/ F-53) (b) Completed (Sch/ F-54)


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10. Materials at Site (Sch/F-61)

11. Stores and Stock 12. Miscellaneous Works

advance (Suspense)

13. Advances to Contractors/ Suppliers

The Balance Sheet has a schedule showing the expenditure on each work. The Schedule will also show, whenever required, activity wise expenditure. Thus, the total expenditure on each work can be known at the end of each month.

12.3.4. External funding agencies rarely meet hundred percent of the expenditure on aided projects. Their share is about 80 percent. However, the Government of India, Ministry of Rural Development meets full expenditure on the PMGSY. Its accounts would have a sub-head for

annual expenditure on externally funded schemes. However, it is not necessary for the receiving agency in the State to open a separate bank account for this. From the balance sheet of the State Agency and the PIU it is easy to work out the total expenditure for the externally aided projects as

follows:

(i) Total approved expenditure (ii) Share of Government of India in the approved expenditure (iii) Share of the external funding agency (iv) Fund received by Government of India from the external funding agency (v) Expenditure on works as per the last monthly account (vi) Proportionate share of the external funding agency in the expenditure

The reimbursement would depend on serial No. (vi) above. The proposed system of accounting meets all the requirements of the external agency. A sample report is at Annexure 12.2.

12.3.5. However, The manual system can also provide this information, either from the works Register (if kept) or from the last running account bill of the contractor until the online accounting system becomes operational. These documents show the work done, measured and paid. The

divisions should also show the amount of advances outstanding against the contractors (from the details available in the contractor’s ledger).

12.3.6. It may not be feasible for some PIUs to show activity-wise details of progress of works till the accounts on the computer become operational. The Ministry of Rural Development has

prepared a statistical model to convert the amount of expenditure into the expenditure on various


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major activities of road construction to bring out a reasonable picture of the state of affairs. This can be adopted with advantage.

12.3.7. The Ministry is working out a system of assigning a suitable identification code to the externally aided works for easy compilation of the reports from the computerised accounting

system.

12.4. Audit

12.4.1. Statutory Audit

The Comptroller and Auditor General of India (CAG) is the auditor for Government accounts. He also audits the accounts of bodies receiving grant or loan if the amount from Government of India and State is more than Rs. 25 lakhs and not less than 75 percent of its total expenditure (Section 14 (1) of the Comptroller and Auditor General (Duties, Powers and condition of Services) Act, 1971. Therefore, all the funds received by the State level Rural Roads Development Agency will fall in his audit jurisdiction.

The State Government may request the CAG to audit the PMGSY accounts under Section 20 of the CAG’s (Duties, Powers and Conditions of Service) Act, 1971 (Section 20 permits audit by consent). Alternatively, the State level Agency may appoint its own auditors from the panel of Chartered Accountants the CAG maintains for the audit of Government companies.

The PIUs will function as ex-officio officers of the State Level Agency. Therefore, their accounts will form part of its accounts, and thus subject to audit by the CAG and the chartered accountants.

12.4.2. Internal Audit

Internal audit can be entrusted to independent auditors. The Institute of Public Auditors of India (IPAI) which has 13 regional chapters in various States with membership of 625, can play a leading role in conducting the internal audit of the accounts with its large pool of qualified members (retired and in-service) with years of expertise in the field of audit of accounts of Government, semi-Government and local bodies etc.

12.5. Organisational Set-Up

At the central level, the NRRDA shall be responsible for the compilation of activity-wise progress reports of the PMGSY and the use of the funds. The NRRDA shall prepare a balance sheet as on the 31st March showing the State-wise release of funds by the MORD and the ledger accounts of the States as its debtors. The balance sheets of the State level Agency will be tallied with the central balance sheet and reconciled. The NRRDA will augment its staff to undertake this task.

At the State level, the State level Agency shall maintain the PMGSY accounts, prepare balance sheet, maintain ledger account of each PIU and reconcile each month the bank account and


CHAPTER 1

PMGSY programme account. It shall augment its staff to deal with the task.

The Central and State staff shall be adequately trained to adopt the new accounting system.

12.6. Procedure for release of funds to the state level agency

12.6.1. Since the PMGSY has adopted a Project approach where road works have to be completed within a stipulated time-limit, the cost of the projects for a State for each Phase of the

PMGSY will be made available to the State level Agency in suitable instalments (upto four instalments).

12.6.2. The first instalment amounting to 50% of the years budget allocation or 50% of the value of projects cleared by the Ministry, whichever is lower, shall be released after the projects have

been cleared by the Ministry subject to utilisation of 60% of the total available funds and fulfilment of conditions, if any, stipulated while releasing the second instalments of the previous year. The

release of the second instalment during the year would be subject to utilisation of 60% of the total available funds and completion of at least 80% of sanctioned road works upto the (but not including) the year previous to the year of release and fulfilment of other conditions, if any,

stipulated while releasing the previous instalment. Total available funds will be aggregate of unutilised funds available with the State-level Agency including the interest accrued at the time of

the release of the previous instalment plus the amount of the previous instalment.

12.6.3. The release of second instalment in a year shall be subject to submission of the following documents:

(a) Utilisation Certificate for the Funds released earlier in the form prescribed.

(b) A Certificate from the Bank Manager, indicating the balance amount on the date of issue of the Utilising Certificate, which should tally with the on-line data.

(c) A Certificate that works which were sanctioned more than two years earlier have been duly competed and the funds released for such works have also been fully utilised.

(d) An Audit Report and Audited Statement of Accounts of the previous financial year, duly certified by a Chartered Accountant.

12.6.4. For the purpose of releasing funds, the State would be the Unit.


CHAPTER 1

CHAPTER 13

maintenance

13.1. remedying defects during the contract period of five years

As per the provisions in the Standard Bidding Documents the PMGSY roads shall be maintained

by the contractors for five years from the date of completion of the works. During this, the

Contractor shall carry out all routine maintenance works required to keep the road in a good

condition. Annexure 13.1 lists out these works and their periodicity. The expenditure on this

maintenance shall be borne by the State government.

13.2. Role of DPIU in Maintenance During the Contract Period of Five Years

The Standard Bidding Document contains provision by maintaining the road for five years. The cost is to be borne by the State Governments. After the expiry of the five year Maintenance shall be transferred to a Panchayati Raj Institution, the State Governments shall give an undertaking to provide funds for future maintenance. A simplified Rural Road Maintenance system shall be adopted.

The DPIU is the authority for managing the maintenance contract for five years after completion of the construction of the road. The DPIU is headed by the Executive engineer who is assisted by Assistant Engineer and Junior Engineers.

For facilitating the maintenance operations, each road should

be divided into Km, and each Km should be sub-divided into

200 metres sections.

The Junior Engineer shall inspect each Km of the road once

in a month. The Assistant Engineer shall inspect the road

once in three months, and the Executive Engineer shall

inspect the road once in six months. One of the inspections


CHAPTER 1

of the Executive Engineer shall be before the monsoons and

one after the monsoons.

During the above inspections, the contractor’s engineer shall be present. All defects such as

potholes, burns needing dressing, clearing of road side gutters and cross-drainage works and

repairs for road furniture should be identified, recorded and intimated to the contractor. The

supervisory staff shall ensure that the repairs are carried out as per specifications with due regard

to quality control. Painting, whitewashing, colourwashing of road furniture items at the specified

periodicity must be got done through the Contractor.

The DPIU shall verify every time the Contractor submits his bill whether the defects noted during

the inspections have been rectified. If the Contractor has failed to carry out an item of work

ordered, the DPIU shall withhold the payment of the bill in that month.

13.3. maintenance after termination of pmgsy contract

13.3.1. After the expiry of the PMGSY contract, the maintenance of the road is the responsibility

of the State Government. While submitting the project for approval, each State Government/ UT

Administration shall identify a suitable Panchayati Raj Institution (District Panchayat/ Intermediate

Panchayat) for undertaking the maintenance of the entire Core Network, and particularly the road

works constructed/ upgraded under the PMGSY. The State Government should issue necessary

instructions to associate the identified Panchayati Raj Institutions with the execution of the

maintenance work at all stages. The State Government will be required to furnish an undertaking

that they would remit (to the identified Panchayati Raj Institution) from the State Government

funds, the requisite cost of maintenance. The State Governments will also offer an undertaking for

the release of the maintenance costs along with their project proposals. The Ministry of Rural

Development will oversee the implementation of this undertaking. It shall be open to the State

Governments/ Panchayati Raj Institutions (PRIs) to develop sustainable alternative sources of

funding for undertaking the maintenance function. It must be emphasised that given the huge

quantum of investment involved in the Programme, the specification and enforcement by the State

Governments of a satisfactory mechanism to provide funding and other assistance for the proper

maintenance of PMGSY assets will be the key to continuance of the Programme in the State.


CHAPTER 1

13.3.2. The Rural Roads will be handed over by the PIU, on completion of the contract (including

guarantee/ maintenance period of 5 years) to the designated Panchayati Raj Institutions for

maintenance, and a separate report will be made in all such cases under OMMS giving the name

of the PRI and the date of its taking over.

13.4. maintenance Planning

The State Governments shall implement a simplified Rural Road Maintenance system, which

consists of a road condition survey (based on simple visual inspection), which yields a Present

Condition Index (PCI), rating scale from 5 to 1, the best performance level being rated as 5, while

level 1 pertains to an extremely poor level of serviceability (Fig. 13.1). The flow chart for such a

system is shown in Fig. 13.2.

Fig. 13 2. Flow Chart for Rural Road Maintenance Management System


CHAPTER 1

Present Condition Index

Level 5

Level 4


CHAPTER 1

Level 3

Present Condition Index

Level 2

Level 1


CHAPTER 1

Fig. 13.1: Illustrations of Pavement Performance at the 5 Levels of Present

Condition Index

Annexure 13.2 gives the details of the Maintenance Management System.

A maintenance programme shall be drawn up for a period of 5-6 years as outlined in Table 13.1.

Table 13.1

Maintenance Programme

Year 1 (i) Reconstruct all pavements with PCI 1.0-1.5

(ii) Normal maintenance over the entire network

(iii) Resurface 50% of the road length with PCI 2.0-2.5



(iii) Resurface balance 50% of the road length with PCI 2.0-2.5

Year 3 (i) Normal maintenance over the entire network

(ii) Resurface 50% of the road length with PCI 2.5-3.0.


(ii) Resurface balance 50% of the road length with PCI 2.5-3.0.


(ii) Resurface 50% of the length with PCI 3.0-3.5


CHAPTER 1


(ii) Resurface balance 50% of the length with PCI 3.0-3.5.

The programme can be reviewed and updated every year. Thus, it is a rolling programme, needing

fresh data input every year and updation.

13.5. modernisation of maintenance operations

Maintenance operations on Rural Roads need to be made more productive by employing low cost

and low technology equipment and hand tools. There should be a switch-over from the gang-

labour system to a mobile unit having equipment as outlined in Table 13.2.

Table 13.2.

Equipment Suggested for Mobile Maintenance Unit

Sl. No. Equipment Suggested Units Required

1. Agricultural Tractor 1

2. Trailer 1

3. Blader Attachment 1

4. Cold Mix Plant 3-5 T/hr 1

5. Cold Emulsion Sprayer (200 litre) 1

6. Air Compressor 1

7. Plate Compactor 1

8. Pavement Breaker 1

Maintenance depots should be established such that the maximum distance travelled is about 50

km. The depots should have space for office, toilets, small workshop, washing bay and storage of

materials. Training programmes for skilled and unskilled workers, technicians etc. can also be

arranged at these depots.

Cold storable mixes should be preferred to hot mix for pot-hole and patch repairs.

Renewal of bituminous surface should be with a single coat of surface dressing using emulsions,


CHAPTER 1

rather than hot-mix premix carpet. It is easier to control the quality of cold bituminous work than of

hot premixes.

13.6. Guidelines For Inspection

The frequency of inspection, duties of supervisory staff and procedure for inspection are given in

Annexure 13.3.


CHAPTER 1

CHAPTER 14

Road Safety

14.1. Background

The construction of new links and upgradation of existing links will generate a considerable amount

of motorised traffic on Rural Roads. The road users, particularly cyclists and school children,

become vulnerable to road accidents on the improved roads, as the speed of motorised vehicles

increases. The width of the carriageway is only 3-3.5m, giving rise to considerable interaction

between the motorised and non-motorised traffic, pedestrians and stray cattle. It has been noticed

that the accident rate increases as the roads are improved. And when an accident takes place,

medical facilities for trauma care are not easily available, and many victims die due to lack of timely

medical attention. Under such circumstances, preventive measures, particularly engineering

measures, can enhance road safety.

14.2. Engineering Measures

The following engineering measures shall be incorporated in the project proposals:

1. All the horizontal curves shall be adequately designed, providing the minimum radius, transition lengths, super-elevation, widening on curves, sight distances etc.

2. All vertical curves shall be provided with safe sight distances.

3. Traffic signs, particularly relating to the presence of schools, sharp turns, narrow bridges, submersible causeways, junctions with important roads shall be provided.

4. Junctions with main roads shall be adequately designed, providing minimum turning radii, sight distances, acceleration/ deceleration lanes, taper etc.

5. Road humps may be considered at villages, and at entry to main road.

14.3. Safety During Construction


CHAPTER 1

Road safety is becoming a serious hazard. Proper safeguards in engineering designs, safety during construction, awareness programmes and institutional arrangements should be undertaken by the States.

During construction, temporary diversions may be provided so that the essential traffic can move without hindrance. The contractor shall be asked to provide these as part of his work. The bidding document and specifications shall give details.

Traffic signs, night lamps and hazard indicators shall be

provided to ensure safety at construction zones.

14.4. Road Safety Awareness

In order to educate young children, road safety awareness shall be made a part of the curriculum.

If necessary, the help of the Police and NGOs shall be sought for this. Panchayat Raj Institutions

shall also be encouraged to involve themselves in road safety awareness programmes. Awareness

raising activities such as publication of pamphlets, audio-visuals, interactive programmes will be

funded on the basis of annual proposals which may be forwarded for clearance of the Empowered

Committee along with the road proposals.

14.5. 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, the SQCs and DPIUs shall ensure coordination with the State

Government’s road safety mechanisms and programmes, in particular through membership of the

State Road Safety Council and District Road Safety Committees, created as per provision 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.


CHAPTER 1


CHAPTER 1

CHAPTER 14CHAPTER 15

Implementation Responsibility

The PMGSY programme encompasses a wide range of activities and its success depends on the

clear allocation of responsibilities at various levels. Table 13.1 lists out some of the key activities

and identifies the officers/ organisations responsible for the implementation.

Sl. No. Activity Officer/ Organisation

Responsible

1. Data collection, inventorying and condition survey PIU

2. Preparation of Master Plan/ Core Network PIU

3. Incorporation of suggestions of MPs and MLAs District Panchayat

4.

Scrutiny of Master Plan/ Core Network 1. District Planning Committee2. District Panchayat

5.

Approval of Master Plan/ Core Network

• at State Level State Level Standing Committee

• at Central Level NRRDA

6.

Preparation of CNCPL PIU

6.7. Preparation of Annual Road List PIU

6.8. Allocation of funds among States MORD


CHAPTER 1

7.9. Distribution of State’s allocation among districts Nodal department in the State

8.10.

Preparation of Project Proposals for each year District Panchayat

9.11.

Clearance of Project Proposals

• at State Level State Level Agency and State Level Standing Committee

• at Central Level Empowered Committee

10.12.

Survey, Investigations, Design PIU

11.13.

Approval of drainage structures 15-25m S.E.

12.14.

Preparation of DPR PIU

13.15.

Scrutiny of DPR Technical Agency

14.16.

Approval of DPR State Level Agency/ NRRDA

15.17.

Technical Sanction C.E

16.18.

Prepare Bid Documents PIU

17.19.

Advertise and Receive Bids PIU


CHAPTER 1

18.20.

Evaluate Bids and Decide on Award Tender Committee

19.21.

Employer for Contract CE, on behalf of State Govt.

20.22.

Engineer for Contract PIU

21.23.

Contract Management PIU

22.24.

Certify Bills and Make Payment PIU

23.25.

Prepare Progress Report and Monitor PIU

24.26.

Quality Control

• 1st Tier PIU

• 2nd Tier Quality Control cell in CE’s office or outside agency like

Technical Examiner

• 3rd Tier NQM

• Analysis of NQM/SQM Reports NRRDA/ PTA

• overseeing the Quality Monitoring System State Quality Coordinator

25.27.

On-line Management System DPIU/IT Coordinator/ IT Division of NRRDA


HABITATION DATA

HABITATION DATA FORMAT-I

A : REFERENCE DATA STATE : CODE DISTRICT : CODE BLOCK : CODE: B : DEMOGRAPHIC & INFRASTRUCTURE DATA (FOR ALL HABITATIONS) :

Provide the following information for each Habitation in the block (Available facilities may be indicated by number of units) 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

Name of Revenue/Census

Villages

Sl. No. Habitations

in the Block

Name of the

Habitation

Total Population SC/ST/Population Primary

SchoolMiddle School

High School

Intermediate Schools

(Plus Two)

Degree Collage/

Vocational School

Health Service Dispensary MCW

Centres PHCs Veterinary Hospital

Commercial Establishment

No. of days

Market held per

week

Post, Telegraph

Office

Telephone Booth

Bus Services

(Y/N)

Railway Station (Y/N)

Electrified (Y/N)

Panchayat HQ (Y/N)

Hilly (H)/ Coastal/

Plain Areas (C)

(H/C/P/NO)

Name of MLA/MP

Constituency

List of Roads

Connecting the

Habitations (give code)

Type of the Road

(AWR/FWR)

MLA : L1 :

MP : L2 :

L3 :

MLA : L1 :

MP : L2 :

L3 :

MLA : L1 :

MP : L2 :

L3 :

MLA : L1 :

MP : L2 :

L3 :

MLA : L1 :

MP : L2 :

L3 :

instruction-i

instructions for filling format-i

The form has three parts as explained below: -

A. Reference data: It contains the name and code number for State, District and Blocks. The two-letter code for various States/ Union Territories, are given in Appendix-I. The State administration will first list all the Districts (preferably alphabetically) and number them serially for use as the District code. The District administration will list all the Blocks (preferably alphabetically) and number them serially for use as the Block code.

B. Demographic and Infrastructure data: This data can be provided for each Habitation, as defined earlier. One revenue village may have one or more Habitations. Therefore, for all such Habitations, suitable codes should be provided. For code number, all Habitations within a Block may be alphabetically arranged and then serially numbered, while Habitation within a village should be alphabetically arranged and then serially numbered. The instructions to fill up each column are given below :

Col 1 Write the name of revenue village and code number

Col 2 Write the code number of Habitation (this is a serial number only from the list of all Habitations in the Block).

Col 3 Write the name of Habitation

Col 4 Give the current population of Habitation based on 2001 Census

Col 5 Give the current SC/ST population based on 2001 Census

Col 6 Write the number of units of each facilities available in Habitation underto 19 relevant column. If not available write zero.

Col 20 Write Yes, if the Habitation is connected with bus facility, otherwise write No

Col 21 Write Yes, if the Habitation is connected with railway station, otherwise No

Col 22 If the Habitation is electrified write Yes, otherwise, write No

Col 23 Write Yes, if the Habitation is the Panchayat Headquarter, otherwise No.

Col 24 Write (H) if the Habitation is in a Hilly area (C) for coastal area and (P) Plain

Col 25 Give the name of MLA and MP constituency.

Col 26 The Habitation may have one or more roads coming from different direction. One or more of them may be All-weather road. On the other hand none of these may be All-weather road. They may be fair-weather road e.g. earth road, track, bridle path, etc. Give the list (code number and type only) of all such roads. If the numbers of such roads are more than the rows specified in the format, then additional rows of the table should be used. These roads will be required to be inventorised in FORMAT-II with the same code numbers. Fill the code number of road from inventory FORMAT-II (after it is prepared).

file:///C|/pro/annexure/annx/op21.htm (1 of 2) [11/5/2003 2:51:36 PM]

REFERENCE DATA

INVENTORY OF RURAL ROADS FORMAT-II

A : REFERENCE DATA

STATE : CODE DISTRICT : CODE BLOCK : CODE

B : Provide the following details of all types of Rural Roads in the Block

Sl.

No.

Name

of

Road

Road

Code

Category Road

(ODR/VR/Others)

Length

(Km)

Ex.

12.935)

Predominant

Soil Type

Terrain

Type

Width (m) Length (Km) with Surface Type) All-

weather

(AW) or

Fair-

weather

(FW)

Condition

Rating

PCI

Existing CD WorksList of Habitations

on the Road

Road

Land

Width

Formation

Width

Carriageway

width BT

WBM/

Metal Earthen Gravel Number Type

Total

Length

(waterway

span)

Width

(M)

Habitation

Code

1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22

CD1 H1

CD2 H2

CD3 H3

CD1 H1

CD2 H2

CD3 H3

CD1 H1

CD2 H2

CD3 H3

CD1 H1

CD2 H2

CD3 H3

Note : Please see the instruction sheet for detail

Certification : certified that the above information is correct : Name : Designation : Signature :

Instruction – II

instructions for filling format-ii

A comprehensive inventory of all types of Rural Roads has to be prepared and all these roads should also be marked on the map. The code number of all such roads should be given in the map.

A. Reference data: Provide the name and code numbers for State, District and Block.


REFERENCE DATA

B. Road Inventory:

Col 1 Serial number

Col 2 Name of road may be formed by giving the names of starting and/ or ending Habitation. The road may have a normal name for it.

Col 3 Give the code number for each road which may be the serial number of road added to the Block code, number may be L1. L2. L3 and so on.

Col 4 Specify the category of road (ODR/ VR/ Other category)

Col 5 Give the total length of the road accurately. For example, 12.935 km indicates it to be 12 km and 935 metres long.

Col 6 Give the major type of soil of the road such as Black Cotton (BC), Silty (SL), Sandy (S), Gravel (G) etc.

Col 7 Terrain type may be classified into Plain (P), Rolling (R) and Hilly (H).

Col 8 Give the three parameters of the road geometry. The land-width,to 10 formation-width and carriage-way are to be recorded.

Col 11 Surface condition: Give the lengths of the road sections having differentto 14 surface type in different parts of the road.

Col 15 Give whether the road is All-weather (AW) or Fair-weather (FW)

Col 16 Give the condition rating (Present Condition Index) in a scale of 1-5 (1 : Very Poor, 5 : Very Good)

Col 17 Cross Drainage (CD) works: Give the details for all existing CD works to 20 along the road. If more than three CD works are there, use additional rows of the Format. For each CD show the waterway span (metres) and carriageway width (metres) of the CD.

Col 21 Give the list of all Habitations within 500 metres from the centre of theto 22 road. Details of all these Habitations are given in FORMAT-I.


RURAL ROAD INSPECTION FORM

RURAL ROAD INSPECTION FORM - I

Name of Rater :………………………………… Date of Inspection : ………………………………..

District : ………………………………… Block :……………………………….

Name of Road :………………………………………………………………. Functional Class :ODR / VR Code No. ……

Topography :…………………Flat / Rolling / Hilly From : ……………………… Km to ……………….Km.

Traffic Volume(ADT) : ………………. Traffic Composition : …………………………………………………………

Approx.Percentage of : HCV : ………………. LCV : …………………….. AT/T : …………………….

C/J : ………………. TW : ……………………. ADV : …………………….

Design Speed : ……… Kmph . Pavement Thickness & Composition :………………………………………………………..

Pavement Surface Type : ……………………………………………… Pavement Width : …………………………. Mts .

Shoulder Surface Type : ……………………………………………… Shoulder Width : ………………………… Mts .

GWT Depth : …………Mts . Indicate Waterlogging ………………………………… Km to ……………….Km.

Soil Type : …………….... Indicate Problematic Soils : Type …………………….. Km to ……………….Km.

Year of Construction ………………………. Construction Agency ……………………………………………………….

Year of last Renewal ……………………….. Maintenance Agency ……………………………………………………….

Approx.No.of CD Structures Per Km Pipe Culverts ………….. Box Culverts ……………………..and their condition :

Causeways ………….. Vented Causeways …………………….

Minor Bridges ………….. Other…………………….

Remarks : ……………………………………………………………………………………………………………………………. ……………………………………………………………………………………………………………………………. …………………………………………………………………………………………………………………………….

Note :ADT : Average Daily Traffic HCV : Heavy Commercial Vehicles (including buses)LCV : Light Commercial Vehicles (incl. Buses) AT/T : Agricultural Tractor/ TrailerC/J : Cars/ Jeeps TW : Motorised Two-wheelersADV : Animal Drawn Vehicles

file:///C|/pro/annexure/annx/op23.htm [11/5/2003 2:52:31 PM]

CODE FOR HABITATION

Annexure 2.4CODE FOR HABITATION

R J 0 9 1 5 0 2 3

This is the serial number of the habitation in the Block. There can be maximum of 999 habitations in the block as three digits are allocated.

This is the serial number of the Block in a district. This shows that a maximum of 99 Blocks can be identified in a District.


CODE FOR HABITATION

This is the serial number of the District in the state. There can be maximum of 99 districts in the state as two digits are provided.

This is two-letter code for the State and this is to be same as that indicated for the package prepared under PMGSY as listed below:

STATE/ UNION TERRITORY CODES

Name of State Code Name of State Code

Andhra Pradesh AP Nagaland NG

Arunachal Pradesh AR Orissa OR

Assam AS Punjab PB

Bihar BR Rajasthan RJ

Chattisgarh CG Sikkim SK

Goa GA Tamilnadu TN

Gujarat GJ Tripura TR

Haryana HR Uttaramchal UT

Himachal Pradesh HP Uttar Pradesh UP

Jammmu & Kashmir JK West Bengal WB

Jharkhand JH Name of Union Territory Karnataka KN Andaman & Nicobar Islands AN

Kerala KR Chandigarh CH

Madhya Pradesh MP Dadra & Nagar Havei DN

Maharashtra MH Daman & Diu DD


CODE FOR HABITATION

Manipur MN Delhi DL

Meghalaya MG Lakshadweep LK

Mizoram MZ Pondicherry PD


RECORD OF PRIMARY AND SECONDARY ROADS

FORMAT-III

RECORD OF PRIMARY AND SECONDARY ROADS

State : Code : District : Code :

Block : Code :

Sl. No.

Name of

Road

Identification Code (e.g.

NH-33)

Kilometer

Length (Km)

Carriageway width (m)

Surface Type (BT/WBM/Gravel/Earth)

Remarks : AW/FW

Starting (e.g.

24.750)

Ending (e.g.

29.770)

1 2 3 4 5 6 7 8 9


HABITATION DATA Col 27 The type of the road i.e. AWR for All-weather Road or FWR for Fair-weather Road

C. Certificate: Give the certificate and sign it.


GUIDELINE FOR DISTRICT LEVEL MASTER PLAN

ANNEXURE 2.6

GENERAL GUIDELINE FOR FORMAT OF DISTRICT LEVEL MASTER PLAN

1. introduction

2. profile of the district

2.1. Geographic Profile

2.2. Demographic Profile

2.3. Socio-economic Profile

2.4. Administrative Structure

3. database for district rural roads plan

3.1. Habitation Data

3.2. Rural Road Inventory

3.3. Primary and Secondary Road Data

3.4. Map

4. district Rural Roads Plan

4.1. Selection of Road links

4.2. District Priority List

APPENDICES (All Data Tables and Maps)


MONTHLY REPORT

Annexure 2.8.

State _______________ Report for the month ,2003

Part A : Monthly abstract of complaints with reference to quality of PMGSY works.

No. of pending complaints at start of month

No. received during month

No. disposed off

Balance

Less then 1 month

1-3 months Over 3 months

Part B : Details of pending complaints over 1 month old

Regn. No Date of complaint

From Subject Sent to Status

Part C : Action taken against contractor/ official during the month _____________

District Road Name Contractor Name

Nature of complaint proved

Action taken against contractor/ official


MONTHLY REPORT


MP-II

MP-II

B. Statement showing proposals made by the MPs and action thereon

Name of MP :

Constituency :

District covered :

Level at which discussions were :held with the MP

Whether MP has given his consent to the proposals (2002-03) :

Sl. No. Details of Proposed

Roads works

Whether included in

DRRP (Yes/No)

Reasons for non-inclusion

in DRRP

Whether included in

current year’s

proposals (Yes/No)

Reasons for non-inclusion

in current year’s

proposals

(PMGSY 2002-03)

MP-I


MP-II

A. List of Roadworks taken up in the District and proposed by the MPs

1. Name of the State :

2. Name of the District :

3. Total No. of Roads taken :up in the District

4. Total Cost :

5. Whether DRRP prepared :

6. Whether ZP resolution on :proposals (2002-03) obtained

Of the above, works taken up as per proposals of Members of Parliament

Name of M.P. Name of Road works Cost (Lakh)1. 2. 3. 4. 5. 6. 7. 8. Sub-Total 1. 2. 3. 4. Sub-Total 1. 2. 3. Sub-Total


MP-II

Total

MP-II

C. Abstract

Total No. of proposals

given

Total No. of Proposals included in

DRRP

No. of Proposals

not included in

DRRP

Reasons for non-inclusion No. of proposals included in this year’s proposals


MP-II


TABLES

Table 4.1 Minimum * Roadway Width for New Construction of Very

Low Volume Roads (≤ 400) in Rural Areas (Ref. 6)

Design Speed (Km/h)

Total Roadway Width (m)

Major Access Minor Access

20 – 5.430 – 5.440 5.4 5.450 5.4 5.460 5.4 5.470 6.0 6.080 6.0 6.090 6.6 –100 6.6 –

* Roadway width includes the width of both carriageway and the shoulder

Table 4.2

Maximum Side Friction Factor and Minimum Radius (New Construction, ADT < 250 veh/day, Limited Heavy Vehicle Traffic) (Ref. 6)

Design Speed (Km/h)



Minimum Radius (m), Rmin Maximum Superelevation Rate (%), emax

4 6 8 10 1220 20 0.180 15 15 10 10 1030 25 0.170 25 20 20 20 2040 30 0.170 35 30 30 25 2550 35 0.170 45 40 40 35 3560 45 0.165 80 70 65 60 5570 50 0.160 100 90 80 75 7080 60 0.150 150 135 125 115 10590 70 0.140 215 195 175 160 150

100 80 0.140 280 250 230 210 195

Table 4.3


TABLES

Maximum Side Friction Factor and Minimum Radius (New Construction, ADT from 250 to 400 veh/day, Limited Heavy Vehicle Traffic) (Ref. 6)

Design Speed (Km/h)



Minimum Radius (m), Rmin

Maximum Superelevation Rate (%), emax

4 6 8 10 12

20 20 0.180 15 15 10 10 1030 25 0.170 25 20 20 20 2040 30 0.170 35 30 30 25 2550 40 0.170 60 55 50 45 4560 50 0.160 100 90 80 75 7070 60 0.150 150 135 125 115 10580 65 0.145 180 160 150 135 12590 75 0.140 245 220 200 185 170

100 85 0.135 325 290 265 240 225

Table 4.4

Minimum Sight distance for Specified Design Traffic Volumes and Location Types (Ref. 6)

Design Speed (Km/h)

Minimum sight distance (m) for specified design traffic volumes and location types

0-100 veh/day 100-250 veh/day 250-400 veh/day

All Locations “Lower Risk” Locations 1

“Higher Risk” Locations 2 All Locations

20 15 15 15 1530 25 25 30 3040 35 35 40 4050 45 45 55 5560 60 60 70 7070 75 75 90 90


TABLES

80 95 95 110 110

90 120 120 130 130100 140 140 155 155

1 away from intersections, narrow bridges, railroad-highway grade crossings, sharp curves, and steep downgrades 2 near intersections, narrow bridges, or railroad-highway grade crossings, or in advance of sharp curves or steep downgrades.

Table 4.5

Minimum Rate of Vertical Curvature to Provide Design Stopping Distance on Crest Vertical Curves (Summit Curves) for New Construction of

Very Low Volume Roads (ADT ≤ 400) (Ref. 6)

Design Speed (Km/h)

All locations for 0-100 vpd and “lower risk” locations for 100-250 vpd1

“Higher risk” locations for 100-250 vpd and al locations for 250-400 vpd2

Stopping Sight Distance (m)

Rate of Vertical Curvature, K3 Stopping Sight

Distance (m)

Rate of Vertical Curvature, K3

Calculated Design Calculated Design

20 15 0.3 0.5 15 0.3 0.5

30 25 0.9 1 30 1.4 2

40 35 1.9 2 40 2.4 4

50 45 3.1 4 55 4.6 5

60 60 5.5 6 70 7.4 8

70 75 8.5 9 90 12.3 13

80 95 13.7 14 110 18.4 19

90 120 21.9 22 130 25.7 26

100 140 29.8 30 155 36.5 37


TABLES

1 “lower risk” locations are locations away from intersections, narrow bridges, railroad-highway grade crossings, sharp curves, and steep grades.2 “higher risk” locations are locations near intersections, narrow bridges, railroad-highway grade crossings, or in advance of sharp curves or steep grades.3 the rate of vertical curvature, K, is the length of curve (L) per percent algebraic difference in intersecting grades (A); i.e., K = L/A.

Table 4.6 Sight Distance Guidelines for New Construction of

Intersections with No Traffic Control (Ref. 6) Design Speed

(Km/hr)Sight

Distance (m)

20 20

30 25

40 30

50 40

60 50

70 65

80 80

90 95

100 120


SOIL SURVEY

SOIL SURVEY

1. The Need

For the construction and maintenance of low cost rural roads catering to relatively low volumes of traffic, local soil is not only the cheapest but also a highly versatile road material which can be used as such or after suitable processing (modification or stabilisation by additives). It is, therefore, necessary that the needed field and laboratory investigations are carried out to scientifically evaluate the engineering properties of the various types of soils encountered adjacent to the centreline of the alignment. These investigations are needed for the evaluation of the strength of subgrade soil(s) for pavement design and to determine the type of processing that may be necessary for its use in a pavement layer. It is to be recognised that the procedures for both the field and laboratory investigations should be simple enough as would be practicable within the available resources and skills in rural areas. Available information on soil types of an area in the form of soil maps (Refer Map given in IRC : SP-20 : 2002) is often helpful.

2. Field Investigations

In order to evaluate the types of subgrade soils, the field investigations should be carried out along the alignment so as to collect representative soil samples wherever there is a visible change in the soil type. Even if the same soil type continues, at least 2 representative samples should be collected from each kilometre length of road alignment. In its simplest form, the method of collecting soil samples consists in digging a pit about 1mx1mx1m. Within this pit, it should be possible to determine the depth of topsoil and the soil type(s) underneath. Generally, it is possible to get acceptable quality of soils within about 0.6m depth


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below the ground level, which can be used in the subgrade and even in subbase/base courses. It is necessary to collect representative soil samples for the different soil strata as visible from the test pit. Ordinarily, the depth of the pit should not be more than 1m and must not exceed 1.5m since the depth of borrow pits normally would be limited to 1.5m. It is often expedient to use a post hole/helical auger (Fig. 1) with or without the digging of pit to a certain depth. It must be ensured that the samples collected are representative of soils to be evaluated. Samples of adequate size (2 to 5kg for gradation and plasticity tests; 20kg where detailed strength tests like CBR are to be carried out). All samples should be collected in sample bags on which the location, depth of strata etc should be tagged.

Fig. 1 : Hand-Operated Augers (a) Helical Auger (b) Post-hole Auger

3. Visual Classification


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In order to identify the broad soil types in the field without any laboratory testing, a visual classification is recommended. For a visual classification, the following categories of soils are proposed (Fig. 2).

Gravels : These are coarse materials with particle size over 2.36 mm. These may have little or no fines contributing to cohesion of the material.

Moorums : These are distinctly different materials from gravels and are products of decomposition and weathering of the parent rock. The properties of these materials naturally depend on the parent rock and the process of weathering and decomposition. Visually they look like gravels except for the difference that the percent fines is relatively much higher.

Sands : These vary in texture from coarse to fine but exhibit no cohesion. They allow water to permeate readily through them.

Silts : These are finer than sands in texture; lighter in colour compared to clays and exhibit little cohesion. Dilatancy is a specific properly of silts. When a lump of silty soil mixed with water is alternatively squeezed and tapped, a shiny surface makes its appearance (Fig. 3).

Clays : These are finer than silts and are the ultimate product of weathering and decomposition of parent rock. Clay and clayey soils exhibit stickiness, high strength when dry and show no dilatancy. Black cotton soils and other expansive types of clays exhibit swelling and shrinkage and are characterised by a typical shrinkage pattern. A paste of clay


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with water when rubbed in between fingers leaves a stain which is not observed for silts (Fig. 4).

Fig. 2 : Visual Classification of Soils and Gravels (Top-Left to Right) Clay, silt

and sand. (Bottom-Left to right) Moorum with excessive fines, Moorum and Gravel

(Ref. 5)

Fig. 3 : Dilatancy Test for Silty Soils (Ref. 5)


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Fig. 4 : Hand-Feel ‘Stain’ Method for Testing clayey Soils (Ref. 5)

The field procedure for visually identifying the soils as per the Unified Soil Classification System developed in USA and adopted in India with slight modifications, is outlined in Table 1. The various symbols in this classification system are :

G : Gravels; S : Sands; M : Silts; C : Clays; O : Organic Soils; Pt : Peat; W : Well-graded; P : Poorly Graded; L : Low Compressibility; H : High Compressibility.

The three field identification procedures for fine grained soils or fractions are described below. Before carrying out any of these tests, remove by hand the coarse particles that interfere with the tests.

(1) Dilatancy (Reaction to shaking):

After removing particles larger than 380 µm sieve size, prepare a pat of moist soil with a volume of about 8000mm3. Add enough water if necessary to make the soil soft but not sticky.

Place the pat in the open palm of one hand and shake horizontally,


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striking vigorously against the other hand several times. A positive reaction consists of the appearance of water on the surface of the pat which changes to a livery consistency and becomes glossy. When the sample is squeezed between the fingers, the water and gloss disappear from the surface, the pat stiffens and finally it cracks or crumbles. The rapidity of appearance assists in identifying the character of the fines in a soil.

Very fine clean sands give the quickest and most distinct reaction whereas a plastic clay has no reaction. Inorganic silts, such as a typical rock flour, show a moderately quick reaction.

(2) Dry Strength (Crushing characteristics):

After removing particles larger than 380 µm sieve size, mould a pat of soil to the consistency of putty, adding water if necessary. Allow the pat to dry completely by oven, sun or air drying, and then test its strength by breaking and crumbling between the fingers. This strength is a measure of the character and quantity of the colloidal fraction contained in the soil. The dry strength increases with increasing plasticity.

High dry strength is characteristic for clays of the CH group. A typical inorganic silt possesses only very slight dry strength. Silty fine sands and silts have about the same slight dry strength, but can be distinguished by the feel when powdering the dried specimen. Fine sand feels gritty whereas a typical silt has the smooth feel of flour.

(3) Toughness (Consistency near plastic limit):

After removing particles larger than the 380µ m sieve size, a specimen of soil about 12mm cube in size, is moulded to the consistency of putty. If too dry, water must be added and if sticky, the specimen should be spread out in a thin layer and allowed to lose some moisture by evaporation. Then the specimen is rolled out by hand on a smooth surface or between the palms into a thread about 3mm in diameter.


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The thread is then folded and re-rolled repeatedly. During this manipulation the moisture content is gradually reduced and the specimen stiffens, finally loses its plasticity, and crumbles when the plastic limit is reached.

After the thread crumbles, the pieces should be lumped together and a slight kneading action continued until the lump crumbles.

Table 1 Field Identification Procedures : Unified Soil Classification System

Field Identification Procedures(Excluding particles larger than 75µm and basing fractions on

estimated weights

Group Symbols

Typical Names

Information Required for Describing

SoilsCoarse-grained

soils More than

half of material is larger than 75

µm sieve size

(The 75

sieve size is about the

smallest particle visible

to naked eye)

Gravels More than

half of coarse fraction

is larger than 4

mm sieve size.

Clean gravels

(little or no fines)

Wide range in grain size and substantial amounts of all intermediate particle sizes

GW Well graded gravels, gravel-sand mixtures, little or no fines

Give typical name; indicate approximate percentages of sand and gravel; maximum size; angularity, surface conditions, and hardness

Predominantly one size or a range of sizes with some intermediate sizes missing

GP Poorly graded gravels, gravel-sand mixtures, little or no fines

Gravels with fines

(appreciable amount of

fines

Non-plastic fines (for identification procedures, see ML below

GM Silty gravels, poorly graded-sand-silt mixtures

Plastic fines (for identification procedures, see CL below)

GC Clayey gravels, poorly graded gravel-sand-clay mixtures

For undisturbed soils add information on stratification, degree of compactness, cementation, moisture conditions and drainage characteristics.Example:Silty sand, gravely; about 20% hard, angular gravel particles 12 mm

Sands More than half of coarse fraction is smaller than 4 mm sieve

Clean gravels

(little or no fines)

Wide range in grain sizes and substantial amounts of all intermediate particle sizes.

SW Well graded sands, gravely sands, little or no fines


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maximum size; rounded and subangular sand grains coarse to fine, about 15% non-plastic fines with low dry strength; well compacted and moist in place; alluvial sand; (SM).

size Predominantly one size or range SP Poorly graded sands, gravely sands, little or no fines

Gravels with fines

(appreciable amount of

fines

Non-plastic fines (for identification procedures, see ML below)

SM Silty sands, poorly graded sand-silt mixtures

Plastic fines (for identification procedures, see CL below)

SC Clayey sands, poorly graded sand-clay mixtures

Fine-

grained soils More than

half of material

is smaller than 75

µm sieve size.

Silts and clays liquid limit less than 50

Dry Strength (crushing

characteristics)

Dilatancy (reaction

to shaking)

Toughness (consistency near plastic

limit)

None to slight Quick to slow

None ML Inorganic silts and very fine sands, rock flour, silty or clayey fine sands with slight plasticity.

Give typical name; indicate degree and character of plasticity, amount and maximum size of coarse grains; colour in wet condition, odour if any, local or geologic name, and other pertinent descriptive information, and symbol in parentheses.

Medium to high

None to very slow

Medium CL Inorganic clays of low to medium plasticity, gravely clays, sandy clays, silty clays, lean clays.

Slight to medium

Slow Slight OL Organic silts and organic lilt-clays of low plasticity.

For undistributed soils add information on structure, stratification, consistency in undisturbed and remoulded states, moisture and


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drainage conditions

Silts and clays liquid limit greater than 50

Slight to medium

Slow to none

Slight to medium

MH Inorganic silts, micaceous or diatomaceous fine sandy or silty soils, elastic silts.

High to very high

None High CH Inorganic clays of high plasticity, fat clays.

Example:Clayey silt, brown; slightly plastic; small percentage of fine sand; numerous vertical root holes; firm and dry in place; loess; (ML)

Medium to high

None to very slow

Slight to medium

OH Organic clays of medium to high plasticity.

Highly Organic Soils Readily identified by colour, odour, spongy feel and frequently by fibrous texture.

Pt Peat and other highly organic soils

The tougher the thread near the plastic limit and the stiffer the lump when it finally crumbles, the more potent is the colloidal clay fraction in the soil. Weakness of the thread at the plastic limit and quick loss of coherence of the lump below the plastic limit indicate either inorganic clay of low plasticity, or materials such as kaolin-type clays and organic clays which occur below the A-line.

Highly organic clays have a very weak and spongy feel at the plastic limit.

4. Laboratory Classification

The two simple tests to be carried out for laboratory classification as per Indian Standard classification system are:

(i) Sieve Analysis (Particle size distribution)(ii) Plasticity Index (PI)

These simple tests are briefly outlined below:

(i) Sieve Analysis


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The particle size distribution is by far the simplest way of broadly classifying a soil in terms of its being granular (gravelly soils), medium grained (sandy soils) and fine grained (silts and clays). The sieve analysis consists simply in taking a weighed quantity of the sample, soaking it in water overnight and washing out the finer fraction through 75 micron IS Sieve. The fraction retained is dried and then passed through a series of sieves (12 in number as specified by Indian Standards). However, for the rural road works, a set of 7 sieves (ISS 40mm, 20mm, 10mm, 4.75mm, 2.36mm, 425 micron and 75 micron) is recommended. To be able to broadly evaluate the particle size distribution of a soil even three sieves namely 2.36mm, 425 micron and 75 micron may suffice. While a mechanical shaker is generally used in well-equipped laboratories, manual shaking of sieves (Fig. 5) is considered sufficient if carried out for a period not less than three minutes.


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Fig. 5 : Sieve Analysis test : (a) set of sieves arranged in order of mesh size and

(b) manual shaking

(ii) Plasticity Index

(a) Liquid Limit: The test is carried out in a standard Casagrande liquid limit (LL) device in which a cup containing a grooved specimen is made to fall on a rubber plate (Fig. 6). The number of blows to close the groove to a length of about 12.5mm is determined for different moisture contents. The liquid limit i.e., the moisture content corresponding to 25 blows is determined from a plot between the number of blows and moisture content.

Fig. 6 : Casagrande Apparatus for liquid Limit Determination

(b) Plastic Limit: The moisture content at which a soil water mix, when rolled into a thread on a glass plate, starts crumbling at 3mm diameter gives the plastic limit (PL) of the soil.

The numerical difference between liquid limit and plastic limit


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is the plasticity index (PI). Thus, it is determined from the liquid limit and plastic limit values of soil. A rough estimate of this can also be made using Uppal’s Syringe. A soil paste is made by adding water to soil such that water is above the plastic limit of soil. This paste is put into the syringe and pushed out through the holes in the cap. Depending upon the texture of the thread, the PI can be estimated as under: -

• Shiny surface and continuous thread: PI>11

• Rough surface and broken threads PI 5 to 11

• No thread formed PI ≤ 5

The Indian Soil Classification System (IS : 1498) is essentially the same as the Unified Soil Classification System except with a slight modification in the classification of fine-grained soils (Fig. 7).


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Fig. 7 : PLASTICITY CHART FOR LABORATORY CLASSIFICATION OF FINE-GRAINED

SOILS.

Table 2Unified Soil Classification System

Description Group Symbols

Laboratory Criteria

Fines (%) Grading Plasticity Notes

Coarse grained (more than 50% larger than 63 µm

Gravels (more than 50% of coarse fraction of

Well graded gravels, with little or no fines

GW 0-5 Cu>4I<CC<3

Dual symbols if 5-12% fines. Dual symbols if


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BS or No. 200 US sieve size)

gravel size) above A-line and 4< PI<7

Poorly graded gravels, sandy gravels, with little or no fines

GP 0-5 Not satisfying GW

requirements

Silty gravels, silty sandy gravels

GM >12 Below A-line or PI<4

Clayey gravels, clayey sandy gravels

GC >12 Above A-line and

PI>7

Sands (more than 50% of coarse fraction of sand size)

Well graded sands, gravelly sands, with little or no fines

SW 0-5 Cu>6I<CC<3

Poorly graded sands, gravelly sands, with little or no fines

SP 0-5 Not satisfying SW

requirements

Silty sands SM >12 Below A-line or PI<4

Clayey Sands SC >12 Above A-line and

PI>7

While describing a soil type, the group symbols given in Tables 1 and 2 should be used and the use of non-engineering terms like red soil, hard soil, black soil, weak soil etc. should be avoided.

The broad classification of soils (as per IS into Gravels, Sands, Silts and Clays based on particle seizes is as under:

CLAY SILTSAND

GRAVELFine Sand Medium Sand Coarse Sand

4.75 mm

2.0 mm

0.425mm(425

micron)


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0.075mm(75 micron)

0.002mm(2 micron)

MATERIALS SURVEY

1. General

All-India surveys carried out for different types of soils and low grade materials in different parts of the country reveal that there is a wide variety of soil types as well as gravels, moorums and naturally occurring soft aggregates which can be used to advantage in rural road construction. The distribution of a wide variety of naturally occurring low grade materials/ soft aggregates is show at Fig. 8. Traditionally, hard stone has been and is still being used as a road material for all categories of roads including the low-volume rural roads. In general, the hard stone has all the attributes of a good construction material, both in regard to strength and durability, but its sources are fast depleting. Moreover, in many parts of the country the leads involved are so long that they make the material costs prohibitive. It is, therefore, necessary to go in for locally available low grade materials especially for rural roads where the construction costs are to be kept low so as to enable full connectivity to all rural habitations within a reasonable time frame. In the class of low grade materials are included various types of soils encountered; sands from streams/ river beds and other sources; moorums which may even be available at shallow depths below the ground level or from other quarries; gravels, well spoils, soft aggregate like laterite, kankar, dhandla, river sand-gravel mixes etc. To this list can also be added the local availability of waste materials like flyash etc.

2. Field Surveys

While locations of the PWD/Zilla Parishad approved quarries of stone metal can


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be obtained from the district headquarters, the quarries for locally available low grade materials like the ones mentioned in para 4.5.1 are generally not known but local enquiries from villagers etc can help a great deal in this regard. Samples of other locally available materials like lime, that could possibly be used as soil stabiliser should also be collected. It is necessary to ensure that the samples collected from quarries of low grade materials are truly representative of the material(s) being evaluated. The samples would have to be subjected to strength tests like CBR besides the classification tests and, therefore, should be about 20 kg in weight. The location and depth of the strata from where the sample has been collected must be tagged on to the sample bag. Besides the quality, it is also essential to assess the quantity of material that would be available from the quarry. In general, the locally available low grade materials can be quite variable in their engineering characteristics. This aspect, naturally has significant implications in the construction and performance of roads. The site quality control of materials can be exercised meaningfully only if sampling and testing of these locally available materials has been carefully done and the design values arrived at judiciously based on laboratory strength values.


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Fig. 8 : Map Indicating Availability of Soft Aggregates for Road Construction (Ref. 5)

3. Material Testing

The samples of locally available low grade materials should be subjected to the following laboratory tests:

(i) Sieve Analysis (Particle Size Distribution)

(ii) Plasticity Index

(iii) Proctor Compaction

(iv) CBR

(v) Aggregate Impact Value

(vi) Deleterious Material : In areas infested with harmful salts and


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containing organic matter, special tests to determine their approximate content need to be carried out, in addition to the above tests.

The laboratory tests at (i) and (ii) have been briefly outlined in Section 4.3. The remaining four are described below:

(iii) Proctor Compaction

This test is conducted to determine the achievable density in the field and the optimum moisture required for compaction. It is conducted in a standard Proctor apparatus (Fig. 9). The soil sample (passing through 20 mm) is compacted in three layers giving 25 blows on each by a standard rammer (weight 2.5 kg, fall 30 cm) at five different moisture contents. From the plot between moisture content and dry density (Fig. 10), the optimum moisture content and maximum dry density are determined.

It may be pointed out here that for rural road works, the Standard Proctor Compaction (light compaction) test is relevant (as per IS : 2720 Part 7) and there is no need to go in for Modified AASHTO or heavy compaction test as per IS : 2720 Part 8, which is recommended for heavily trafficked/ highway works.

(iv) CBR

It is extensively used for the design of flexible pavements in India. The test apparatus is shown Fig. 11). The test is carried out on a sample compacted at optimum moisture content to maximum dry density and soaked for 4 days. In case of stabilised soil specimen (with lime/cement), the specimen is cured for 7 days prior to 4 day soaking. The CBR of the specimen is computed from the load needed for 2.5 mm/ 5 mm penetration of a standard plunger determined from the graph between penetration and load. If required,


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the zero correction is applied for penetration while computing the load for 2.5 mm/ 5mm penetration (Fig. 12).

Fig. 9 : Standard Proctor Compaction Test Apparatus


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Fig. 10 : Moisture-Density Relationship

Fig. 11 : CBR Test Set-up


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Fig. 12 : Typical Load-Penetration Curve for a CBR Test

(v) Aggregate Impact Value

The test is done on the coarse fraction in soil-gravel or on stone and soft aggregates. The crushing produced in an AIV test apparatus (Fig. 13) by a rammer (13.5 kg) when it falls 15 times through 375 mm on the sample (Passing 12.5 mm and retained on 10 mm ISS) is determined by sieving the sample through 2.36 mm IS Sieve. The AIV of sample is expressed as percentage of the material passing through 2.36 mm IS Sieve to the weight of sample taken. A rough estimate of AIV can also be made from the moisture absorption by aggregates in 66 hrs.


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Moisture Absorption less than :

Approximate AIV Less than

1.5% 30%

3.0% 40%

6.0% 50%

Fig. 13 : An Aggregate Impact Test Apparatus

(vi) Deleterious Material

The presence of organic matter and harmful salts like sulphates also


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need to be evaluated. Presence of organic matter can be detected by its smell and dark colour, in case of fibrous materials. The organic content can be determined by burning a weighed quantity of soil and noting the loss on ignition. The presence of sulphates can be detected by adding a few crystals of barium chloride to the filtrate of soil suspension in water. If a white precipitate is formed, this gives an indication of the presence of sulphates. From the extent of milkiness of the solution, an approximate evaluation of sulphate content can also be made.

Sodic soils can be easily detected by dipping an inexpensive pH determining strip into a solution of the soil sample in water and comparing the changed colour of the strip with a standard colour chart. If pH value is estimated to be over 8.5 from the colour chart, the soil is sodic in nature and unsuitable for use (i) as an embankment material (ii) as filler in WBM and (iii) in roadside earthen shoulder.

4. Suitability Criteria for Materials

The samples of soils/ soil-gravel/ aggregates collected during the material survey are tested in the laboratory to confirm their suitability for use in the different pavement layers. The criteria regarding the suitability of these materials for gradation, plasticity and strength requirements have been outlined in the Rural Roads Manual. However, considering the constraints in rural areas, these have been simplified and are given at Table 3.

In case the available materials meet the requirements as outlined at Table 3, these can be used as such. Otherwise, the local materials have to be processed with a view to improve their engineering properties so that these can be


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incorporated in the lower layers of road pavements. The various methods which can be adopted to improve the local soils and inferior aggregates are shown in Fig. 14.

Table 3Gradation & PI Requirement for Sub-base, Base and Wearing Courses (Ref. 5)

Sl. No. Fraction Percent (by

Weight)

1. Sub-base/base courses

(a) Gradation requirements

(i) Passing 40 mm and retained 2.36 mm IS Sieve

45-65

(ii) Passing 2.36 mm and retained 75 micron IS Sieve

30-40*

(iii) Passing 75 micron IS Sieve 5-15

(b) The Plasticity Index of the fine fraction (passing 425 micron IS Sieve) should be less than 6.

2. Wearing Course

(a) Gradation requirements

(i) Passing 40 mm and retained 2.36 mm IS Sieve

30-60

(ii) Passing 2.36 mm and retained 75 micron IS Sieve

30-50


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(iii) Passing 75 micron IS Sieve 10-25

(b) PI Requirement :

ClimateLiquid Limit not to

exceedPlasticity Index

(Range)

(i) Moist temperature and wet tropical

35% 6-9

(ii) Seasonal wet tropical 40% 6-15

(iii) Arid 55% 15-30


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FIG. 14 : SOIL STABILISATION TECHNIQUES


CROSS DRAINAGE STRUCTURES

CROSS-DRAINAGE STRUCTURES

1. General

Cross-drainage structures which are intended for crossing of water barriers along the road alignment constitute the most important component affecting the all-weather character of the road. These crossings are generally one of the costly items (forming roughly 25-30 per cent of total construction cost) in road projects. On rural roads, these structures should be as economical as possible to be in consonance with the low-cost concept of the road and at the same time be consistent with the technical and functional requirements.

2. Choice of the Type of Water Crossing

1. A variety of water crossings are possible. These can be considered under two broad groups, namely :

(i) Crossings that are submersible, such as fords, paved dips, cause-ways etc.

(ii) Crossings that are not submersible, such as culverts, bridges and ferries.

Each type of crossing has an appropriate place for use. Generally, high level bridges across major water courses are not envisaged for rural roads, and this aspect must be paid due attention at the road planning stage itself.

2. The considerations in the proper choice of the type of crossing are :

(a) Functional

(i) Number of vehicles delayed (ii) Length of time of each delay (iii) Number of times per year these delays occur.



(b) Technical

(i) Nature and width of stream, and flood flows whether flashy or sustained. (ii) Velocity of flow and bed slope (iii) Maximum and minimum depth of flow (iv) Presence of floating debris, boulder movement on the bed, etc. (v) Local materials and skills available.

(c) Economical

(i) Cost of initial construction

(ii) Cost of maintenance or reconstruction

(iii) Cost of delays to vehicles (in the case of submersible crossings).

Normally, experience and local practice will be highly helpful in the choice of the appropriate crossing thus obviating the need for detailed calculations. However, there can be overlapping cases suggesting more than one alternative. In such cases where doubt exists, it would be worthwhile to evaluate the alternatives taking all the above mentioned aspects into account. For the quick selection of promising alternatives, the guidelines given in Table 1 will be helpful.

Table 1Guidelines for the Choice of Cross Drainage

Structure for Rural Roads

Sl. No. Type of structureLocation where the structure

will be found suitable



1. Ford Shallow non-perennial stream where maximum depth of flow does not exceed 1.6m and the period of interruptions at one stretch does not exceed 12 hours for ODRs and 24 hours for VRs in hilly terrain, and 3-days in the case of roads in plains. Also, the total period of interruption should not exceed 10-days for ODRs and 15-days for VRs. Suitable for roads in arid or isolated areas carrying very low traffic. Also for roads in a network where alternate route is available during the rainy season. Low in initial cost, and ideal for crossing of men on foot and cattle.

2. Paved dip (or bed causeway)

Same as for Sl. No. 1 except that the traffic on the road may be somewhat higher.

3. Vented causeway Shallow streams having permanent dry weather flow exceeding 0.6m in depth. The same criteria indicated for Sl. No. 1 as regards interruption equally apply to this case also.

4. Submersible bridge In cases where high level bridge is too expensive to construct.

5. Culvert This is a high level structure having total span upto 6m. Suitable for narrow streams.

6. High level bridge Ordinarily high level bridges designed to cater for the maximum possible flood discharge should not be considered for rural roads. However, situations warranting such bridges are: crossing of deep narrow streams or ravines in hilly terrain.

7. Ferry and pontoon/ boat bridge

In case of large streams where it is not economical to provide a bridge, ferry service or pontoon/ boat bridge may be appropriate.

3. Design Standards

(1) Design loading Road bridges, culverts and vents for causeways should be designed for the categories of loadings as described in IRC : 6 “Standard Specifications and Code of Practice for Road Bridges, Section II-Loads



and Stresses”, reproduced below :

IRC Class A Loading : This loading is to be normally adopted for all roads on which permanent bridges and culverts are constructed.

IRC Class B Loading : This loading is to be normally adopted for temporary structures and for bridges in specified areas. Structures with timber spans are to be regarded as temporary structures for the purpose.

(2) Roadway width Culverts (upto 6m span) : In plain and rolling terrain, the roadway width on culverts (measured from outside to outside of the parapet walls) both for ODRs and VRs should equal the normal roadway width given in Rural Road Manual (RRM). In mountainous and steep terrain, the clear roadway width available on the culverts (measured from inside to inside of parapet walls or kerbs) should be as below :

ODRs : Same as given in RRM VRs Minimum : As given in RRM Desirable : 4.25 m

Bridges (greater than 6m span) : At bridges constructed for road traffic, clear width of roadway (between kerbs) should be as under :

Desirable : 7.5 m Where 7.5m width cannot be provided : 5.75 m Exceptional : 4.25 m

Where a footpath or footbridge is provided for the use of pedestrians, its width should not be less than 1.5m.

Causeways and submersible bridges: Roadway width at causeways and submersible bridges should be normally adequate for two lanes of traffic, i.e., 7.5m wide, unless it is specially reduced by the competent authority.



(3) Gradient The gradient on the low-level crossings (e.g., paved dip) and their approaches shall not exceed 1 in 12. Suitable vertical curves designed for safe stopping sight distance should be provided at breaks in the grade line subject to a minimum length of 15m.

4. Details of Submersible Type of Cross-Drainage Structures

(1) Ford Location for the ford is chosen at a place where the stream runs in shallow channel. A trench about 1m wide and 1 to 1.2m deep is dug on the bed of the stream along the downstream edge of the road. The trench is then filled with stones in wire crates upto the level of the road. As an alternative, a masonry (stone or brick in cement mortar 1:4) wall could be built along the down-stream edge to retain the road in position. The road surface is formed by levelling the stream bed with gravel. After one or two seasons, fines transported by the stream will fill in the voids in the gravel surface, leaving a satisfactory stream crossing. Details of a typical ford are illustrated in Fig. 1.(2) Paved dip This is similar to a ford constructed flush with the stream bed except for the provision of permanent riding surface protected by cut-off walls both on the upstream and downstream sides. Fig. 2 illustrates the details of a paved dip. (3) Vented Causeway Vented causeways have the double function of passing normal discharge through the vents below the roadway and the flood discharge both through the vents and over the roadway itself. Some of the important considerations in the design of this type of structure are :

(i) The vents should be sufficient to pass the normal water flow



without overtopping. This should be checked for the maximum annual flood to ensure that the interruption criteria given in Table1 are not transgressed.

(ii) The vents should be distributed throughout the length of the causeway. All entry faces should be bell-mouthed to reduce hydraulic losses, and thereby the afflux. The vents may consist of pipes, reinforced concrete slabs, arches or stone slabs depending on the availability of materials and local conditions.

(iii) The roadway should preferably be given one way crossfall towards the downstream side. This will have the advantage of reduced afflux and avoid the chance of a standing wave (consequence – turbulence and serious erosion) being formed.

(iv) Other measures for reducing the hydraulic resistance are rounding/ bevelling the upstream edge of the causeway, and provision of streamlined guard stones.

(v) The final road levels (grade line on the causeway) should be kept as low as possible, consistent however with satisfying the interruption criteria. It should be clearly understood that the flood levels would increase (because of afflux) on the upstream side after the construction of the structure depending on the extent of obstruction. Any checking for the interruption criteria should be with reference to the affluxed flood level.

(vi) Suitable cut-off walls should be provided at both the upstream and downstream sides. Unless rock is met with at higher levels, these walls should go down to at least 1m and 2m on the upstream and downstream sides respectively. These walls should be protected by means of apron comprising rubble stone or cement concrete block to a width of 2m and 5m on the upstream and downstream sides respectively.



Fig. 3 shows a typical vented causeway using RCC pipes for the vents.

(4) Submersible bridge Submersible bridges are functionally superior to vented causeways, and are provided where it will be very expensive to construct high level bridges. Normally, the vent-way and deck level should be so fixed that it is possible to pass below the roadway the flood of 5 to 10 year frequency. In the design of such bridges, the impact of floating debris should be taken care of.

5. Details of Non-Submersible Cross-Drainage Structure

(1) Culverts A culvert is defined as a bridge structure having a gross length of 6m or less between faces of abutments or extreme vent-age boundaries. Culverts may be of different types, namely, pipe culvert, RCC slab culvert, RCC box culverts, stone slab culvert or masonry arch culvert, but their choice will depend on the relative cost and construction convenience.

Pipe culverts are versatile and will be found to be economical and easy to construct in most of the situations where a difference in level of at least 1.25 m between the stream level and road level is available. RCC pipes should be of NP-3 grade to IS : 458 and shall have a minimum diameter of 0.75m to ensure easy cleaning.

The minimum cushion over the pipe shall be 0.6m. It is important to place the pipes on an even bedding of granular soil or sand shaped to fit the lower portion of pipe to a height of at least one-fourth the diameter of the pipe. Longitudinal slope of the pipe should be 1 in 1000 minimum. It will be preferable to extend the pipes beyond the roadway till they meet the earth slopes so that expensive headwalls are avoided. The entrance should be bell-mouthed to improve hydraulic efficiency.



RCC slab or stone slab culverts may be used where the available difference in level between the stream bed and road top is not sufficient to introduce a pipe. Stone slab culverts may be advantageous in areas where the suitable stone is easily available. They can be used for spans upto about 1.5m.

In isolated areas, where the crossing is generally used by people, cattle or a few light vehicles, empty bitumen or oil drums with their ends removed could be used as a temporary crossing. The drums are placed one after the other in a line, with earth cushion to a depth of at least 0.6 m on the top. These may, however, require to be replaced once every 2-3 years.

(2) Foot bridges In isolated areas, in locations where provision of a motorable bridge may not be economically feasible and where a crossing is required only for people and cattle, provision of foot bridges will be an expedient solution. Foot bridges may vary in shape and details of construction depending on the local materials available. A variety of materials, like tree trunks, wooden sections, R.S.Js or used rails can be used for the main beams over which wooden deck could be constructed. In areas where bamboo is available in plenty, two to four pieces of bamboo can be clamped or fixed together to act as a single beam for span upto 3m.

For foot bridges, the minimum width of deck shall be 1.5m. Where the crossing stream is deep, or the water current is fast, hand railings should be provided.

(3) Timber bridges In areas where timber is locally available, it can be used both for the foundations and the superstructure of a bridge. Timber bridges should be considered as temporary structures having a life span of 10-20 years.

The foundations may consist of timber piles or trestles depending on



local conditions. Pile type supports should be used when site conditions are affected by deep water or swift current causing scour, low capacity soil overlying rock, or unconsolidated soil with low bearing capacity. Typical timber trestle pier and pile pier are illustrated in Fig. 4. For spans greater than 5m, a double row of piles/ trestles should be used for the pier.

Timber for the piles and other structural members of the bridge should be creosoted seal wood or any other wood of similar quality.

The cap or timber which rests directly on the piles/ trestles should consist of creosoted wood 200mm x 300mm in size and long enough to bear all the supports. The cap is generally fastened to the supports by means of drift pins which consist of iron rod pieces of about 0.6m long sharpened at one end. A hole slightly smaller than the size of the drift pin is bored down vertically through the cap just over the centre of each support, and the pin dipped in hot bitumen, driven with a heavy hammer down through the cap and into the support. Stringers or longitudinal beams may be of

rectangular wooden sections for spans upto about 6m. Beyond this span, rolled steel joists (RSJ) should be used.

All stringers should be at the same level at the top so that floor planks will bear evenly on every stringer in a panel. If one stringer is slightly higher than the rest, turn it over and trim it a little at the ends where it rests on the cap. Cutting of the timber sections all along the length for achieving the desired level should be avoided.

Decking planks 100 mm thick should be laid with each plank nailed to one next to it so that a solid slab of wood 100mm thick is obtained. The floor should also be creosoted.

(4) Masonry arches for culverts and bridges



Masonry arches for culverts and small bridges will be found suitable where there is sufficient difference in the level between the stream bed and the road, and necessary skilled labour is available.

The masonry arches may be either of cement concrete blocks 1:3:6 or dressed stones or bricks in cement mortar 1:3. Details of masonry arches for spans upto 6m are given in Fig. 5.

(5) Scupper Scupper is an opening below the roadway formed by stone corbelling for cross drainage purposes. This can be advantageously used in hilly areas where stones are generally available in abundance. The scuppers should be built in such a manner that flow along the bed of natural water course is not obstructed. Minimum cushion over the scuppers should be 40 cm. Scuppers and culverts on hill roads should be provided with catch pits.

(6) Other types of bridges Among the other types, suspension bridges will be found convenient for crossing deep gorges in mountainous and sub-mountainous areas where provision of intermediate supports will be not feasible. Another type which is used by the armed forces and for emergency crossings is the Bailey bridge which is formed by joining pre-fabricated panels and members.

(7) Boat ferries Ferry is a floating device that operates between two terminal points of a road network interrupted by a water barrier. Ferry should normally be considered only where the draft is adequate for plying of boats, there is not much seasonal fluctuations in water level or widths, and where the river current is within manageable limits. The site of crossing should allow the economical construction of terminal facilities such as ramps, loading/ unloading platforms etc. In adverse weather and high spate



conditions of the river, the ferry will not be safe and the operation should be suspended. For passenger traffic, country boats having capacity of 15-20 passengers can be operated economically. For transport of vehicles like lorries and passengers/ cattle in larger numbers, large-sized boats or two boats joined together may be warranted.

(8) Pontoon bridges Pontoon bridges are temporary means of crossing the water barriers. These may be employed at locations where ferry is not economically or technically feasible and at locations with difficult bottom conditions to make fixed bridging uneconomical.

6. Signs and Guide Systems for Water Crossings

Generally, a majority of the low cost water crossings of rural roads will have some deficiency or the other as compared to permanent high level structures on main roads. These may be with regard to submergence during the monsoon season, or limitation on load carrying capacity or roadway width.

All submersible crossings must be provided with flood gauges to indicate the depth of flow over the roadway for warning the road users. Type design for flood gauge is given in IRC : 67. Also, guide posts (circular or streamlined in shape) should be provided at two-metres interval on either edge of the roadway. These posts should be about 0.5m high, and should be painted white.

For all crossings deficient in load capacity or roadway width, the restrictive/ warning signs should be posted sufficiently in advance on either side for advance notification to motorists. Details of these signs are given in IRC : 67 (Ref. 10).

7. Typical Designs of various types of cross-drainage structures are given in the Rural Roads Manual.


FIELD DATA SHEET FOR TRAFFIC CENSUS

field data sheet for traffic census

Name of Road :Location on Road : KmDistrict :State :

Hour

Vehicle Class

Cars, Jeeps, Vans, Three-

wheelers

Motorised two-

wheelers

Light Commercial

VehiclesTrucks

Agricultural Tractors/ Trailers

Buses Cycles Cycle Rickshaws

Animal Drawn

Vehicles

Remarks Season : Post

Harvest Monsoon) Weather :

From Hrs. To Hrs.

From Hrs. To Hrs.

From Hrs. To Hrs.

From Hrs. To Hrs.

Record traffic volume by tally marks [four vertical strokes followed by a diagonal stroke for the 5th vehicle (



IIII IIII II)]

summary of 3-day count.

Name of Road :

Location on Road : Km

District :

State :

Day

Vehicle Class

TotalCars, Jeeps, Vans, Three-

wheelers

Motorised two-

wheelers

Light Commercial

VehiclesTrucks

Agricultural Tractors/ Trailers

Buses Cycles Cycle Rickshaws

Animal Drawn Vehicles

Day 1 (Date) Day 2 (Date) Day 3 (Date)

Total Average Daily Traffic

PCU Factor 1.0 0.50 1.5 3.0 1.5 3.0 0.5 2.0 4.0 for Horse Drawn 6.0 for Bullock drawn

Average Daily Traffic PCUs


PAVEMENT DESIGN

PAVEMENT DESIGN

1. Flexible Pavement Design

1.1 An Appraisal of various design approaches

An appraisal of the following design approaches has been done and is enclosed as an Appendix to this section.

(i) IRC Rural Roads Manual

(ii) AASHTO Approach for Low Volume Roads

It is seen that the design catalogues in IRC Rural Roads Manual give pavement thicknesses which are on the high side, and suggest the use of costly stone aggregates. On the other hand, AASHTO Guidelines recommend aggregate-surfaced (gravel) roads for the very low volume roads.

Keeping these in view, some cost-effective simplified designs are suggested.

In the proposed designs, traffic has been classified into 3 categories as under:

Light Traffic : ADT < 150 Medium Traffic : ADT 150 to 500 Heavy Traffic : ADT > 500

[Note : ADT is the Average Daily Traffic, including all animal-drawn vehicles and motorised vehicles with 4 wheels and above]

Similarly, the subgrade strength has been classified into the following :

Good subgrade Soil CBR > 7Ordinary Subgrade Soil CBR 3 to 7 Weak subgrade Soil CBR < 3

The recommended designs for each of the three subgrade soil groups for Light Traffic and for Medium Traffic are shown in Fig. 1. It is recommended that for heavy traffic, ADT>500, the designs may be worked out as per IRC-37. Where


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adequate CBR testing facilities are not available, the soaked CBR value for a subgrade soil compacted to Proctor Density can be estimated from the nomograph given in Fig. 2, based only on sieve analysis of the soil. Where the CBR testing facilities are available but a 4-day soaking of the sample does not appear warranted, the critical subgrade moisture at which the CBR sample should be compacted can be estimated from the nomograph in Fig. 3, based on insitu subgrade density sought to be achieved, depth of shallowest GWT, the PI of the soil and the average annual rainfall in the area.

2. Bituminous Surface Treatment

2.1 General

For the high speed, heavily trafficked highways, where a high level of serviceability is to be maintained, it often becomes necessary to provide a bituminous base course and a dense-graded bituminous concrete wearing course which also serves as a structural layer for the pavement. However, for the low volume rural roads, where axle loads of rural vehicles plying over them as well as the volume of rural traffic are relatively much lower and the acceptable level of serviceability is also of a much lower order, the purpose of any surface treatment is mainly to render the surface sufficiently water proof and dust proof, besides providing a smooth riding surface. Moreover, rural roads are essentially low cost roads and the type of surface treatment should be so selected that it should render the surface reasonably smooth, water proof and dust proof at least cost. In the subsequent paragraphs, the warrants for the provision of a bituminous surface treatment will first be discussed and then the type(s) considered most appropriate for rural roads.


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2.2 Warrants

The more important purposes for providing a low-cost thin bituminous surface treatment over a rural road pavement are: -

(i) to provide a smooth riding surface which reduces the vehicle operation cost of pneumatic tyred fast vehicles in comparison to unprotected granular surfaces.

(ii) to prevent the entry of water into the pavement structure by sealing the surface, and

(iii) to protect the granular surface from the disruptive effects of traffic e.g. causing dust nuisance, loss of granular material from the surface, etc.

Keeping the above aspects in view, the two warrants that emerge for the provision of a thin bituminous surface treatment are: -

• Pavements in high rainfall areas where protection is needed against infiltration and surface erosion.

All areas receiving an annual rainfall of 1500mm or more may be considered as high rainfall areas. Rural Roads in areas receiving 1000-1500mm average annual rainfall may also be included in case of local soils being highly susceptible to erosion and/ or the intensity of rainfall being exceptionally high.

• Pavements over which high speed pneumatic tyred vehicles ply in large numbers.

Rural Roads receiving only light traffic (ADT<150) with slow moving vehicles (including animal drawn carts, jugads, tractors/ tractor-trailers etc. but excluding two-wheelers) constituting more than half the total volume of traffic, may not be provided with a bituminous surface treatment.


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2.3 Selecting the Type of Bituminous Surface Treatment

The two common types of thin bituminous surface treatments being used in India are:

• Open Graded Premix Carpet (20mm) with or without seal coat.• Surface Dressing (single/ double coat).

Out of these two types, the Open Graded Premix Carpet is relatively more popular than Surface Dressing in India. In both developed and developing countries abroad, however, Surface Dressing (SD) is much more popular than the Open Graded Premix Carpet (PMC). In this context, following points in favour of Surface Dressing are note worthy:

• The recently revised MoRT&H Specifications and the recently brought out Manual for Construction and Supervision of Bituminous Works contain some very useful information on various aspects of Surface Dressing based on extensive R&D work done abroad. Information on the selection of nominal chipping size for different ranges of traffic, very scientific procedure of determining the rates of spread of binder and chips depending upon the traffic, type of existing surface, climatic conditions, type of chippings contained in these IRC publications can be referred to and these are expected to go a long way towards a successful application of surface dressing on low volume rural roads.

• Unlike the PMC, no heating of aggregates is needed whether the binder used is a straight run bitumen or a bituminous emulsion.

• No prior mixing of aggregates and binder is necessary

• The equipment required for surface dressing is not as elaborate as for laying a premix carpet.

• When straight-run bitumen is used as a binder, more rigorous


PAVEMENT DESIGN

temperature control is needed for Premix carpet than for Surface Dressing

• Surface dressing is more amenable to stage development of rural roads, since subsequent coats can be put depending on requirements.

• Last but not the least, the cost of the two-coat surface dressing is very significantly lower than that of a bituminous premix carpet as shown in Table 1.

Table 1Estimated Costs of PMC + Seal Coat and Surface Dressing (Rs/ sq m)

Sl. No. Item Description With Emulsions With 80/100 grade Bitumen

1 PMC 43 50

2 SealLiquid 26 21Premix 17 16

Total Cost with Liquid Seal Coat 69 71Total Cost with Premix Seal Coat 60 66

3 Surface Dressing1st coat 25 19

2nd coat 21 16

Total for 2 coats

46 35

Some guidelines on the selection of the size of aggregates for surface dressing, based on traffic and the type of base, are given in Annexure 4.10.

2.4 Selection of Bituminous Binder

In both the types of surface treatments, any of the following two types of bituminous binder can be used:

1. Straight-run Bitumen of appropriate penetration grade. The recommendations for selection of appropriate penetration grade are outlined in Table 2. The essential quality control tests recommended


PAVEMENT DESIGN

for straight-run bitumen are: Penetration, Softening Point and Flash Point Tests.

Table 2Recommendations for selection of Penetration Grade Binder

T max (oC)<20 20to 30 30 to 40 40 to 50

T min (oC)

-10 to 0 80/100 80/100 PMB* PMB*

0 to 10 80/100 80/100 60/70 PMB*

10 to 20 80/100 80/100 60/70 60/70

>20 – 80/100 60/70 30/40

* PMB : Polymer Modified Binder

If the above Table indicates that PMB is to be used, the exact grade and type of MB may be selected from Table 3.

Table 3Selection Criteria for PMB and CRMB based on Atmospheric Temperature

Minimum Atmospheric Temperature

°C

Maximum Atmospheric Temperature °C

< 30 30 to 40 > 40

< –15PMB-120* PMB-70 PMB-70

CRMB-50** CRMB-55 CRMB-60

–15 to 15PMB-120 PMB-70 PMB-40

CRMB-55 CRMB-55 CRMB-60

> 15PMB-70 PMB-40 PMB-40

CRMB-55 CRMB-60 CRMB-60* Average Penetration Value ** Softening point is not less than this value

2. Bituminous Emulsion of appropriate grade (RS, MS, SS) as per IS:


PAVEMENT DESIGN

8887.

The Medium Setting (MS) Grade is suitable for both plant mix (cold) and mixed-in-place using open-graded aggregate and the Rapid Setting (RS) grade is suited for Single and Multiple Coat Surface Dressing.

While the various laboratory tests for bituminous emulsions are detailed in IS: 8887, the simple test considered most important from practical considerations is described below:

Storage Stability Test: This test provides a measure of settlement that may take place in a sample of emulsion by way of bitumen globules settling out during storage of the emulsion. Two graduated cylinders are taken with a 50 ml sample of emulsion in each. After standing for 24 hours, small samples are taken from the bottom and top parts of each cylinder. On heating of the samples, water evaporates leaving behind the residues. The difference in weight of residues between top and bottom samples indicates the settlement of bitumen globules.

Detailed specifications for Open-graded Premix Carpet (i) using straight-run bitumen and (ii) using cationic bituminous emulsion are available in Clauses 511 of the MoRT&H Specifications. For Surface Dressing, detailed information is available in clause 510 of MoRT&H Specifications and in the Manual on Construction and Supervision of Bituminous Works.

The factors to be taken into account in selecting an appropriate binder for surface dressing are :

1. The road surface temperature at the time the surface dressing is undertaken:For penetration grade and cut-back binders, the viscosity of the binder should be between 104 and 7 x 105 centistokes at the road surface


PAVEMENT DESIGN

temperature.

2. The nature of the chippings:If inherently dusty chippings are anticipated and no pre-treatment is planned, the viscosity of the binder used should be towards the lower end of the permissible range (under no circumstances may chippings that are heavily contaminated with dust be used). If the binder selected is an emulsion, it should be borne in mind that anionic emulsions may not adhere well to certain acidic aggregates such as granites and quartzites.

3. The characteristics of the road site:Fluid binders such as emulsions are not suited to steep crossfalls or gradients since they may drain off the road before ‘breaking’, leaving insufficient binder to retain the chippings.

4. The type of binder handling and spraying equipment available:The equipment must be capable of maintaining an adequate quantity of the selected binder at its appropriate spraying temperature and spraying it evenly at the required rate of spread.

5. The cost of the binder available The amount of binder required per unit area of surface dressing should be estimated and costed.

Consideration of the above factors will usually narrow the choice of binder to one or two options. The final selection will be determined by other factors such as the past experience of the surface dressing team.

2.5 Bituminous Binder for Prime and Tack Coats

It has been observed at some rural road works that straight-run bitumen was being used for applying prime coat and tack coat. In this regard, it must be noted that the MoRT&H Specifications recommend only the use of cationic bitumen emulsion; generally a Slow Setting (SS) grade is found suitable. Only for sites at


PAVEMENT DESIGN

sub-zero temperatures or for emergency applications, a medium curing (MC) cutback may be used. Out of the liquid bitumens, emulsions are always preferred to cutbacks, since evaporation of volatile diluents like kerosene, naphtha etc. from cutbacks are considered hazardous from environmental considerations.

The quantities of bituminous emulsions to be applied for Prime Coat and for tack Coat are given in Tables 4 and 5 respectively.

Table 4Viscosity Requirement and Quantity of Bituminous Primer

Type of Surface Kinematic Viscosity of Primer at 60oC (Centistokes)

Quantity per 10 sq m (kg)

Low porosity * 30-60 6 to 9

Medium porosity ** 70-140 9 to 12

High porosity *** 250-500 12 to 15

* Surfaces of low porosity: such as WBM, WMM** Surfaces of medium porosity: such as cement stabilised soil base*** Surfaces of high porosity: such as a gravel base

Table 5Rate of Application of Tack Coat

Type of SurfaceQuantity of liquid bituminous

material in kg per 10 sq m area

(i) Normal bituminous 2.0 to 2.5

(ii) Dry and hungry bituminous surfaces

2.5 to 3.0

(iii) Granular surfaces treated with primer

2.5 to 3.0


PAVEMENT DESIGN

(iv) Non bituminous surfaces

(a) Granular base (not primed) 3.0 to 4.0

(b) Cement concrete pavement 3.0 to 3.5

Note: There is no need to apply a tack coat on a freshly laid bituminous course if the subsequent bituminous course is overlaid the same day without opening it to traffic.

It is very necessary for a satisfactory performance of a bituminous surfacing that appropriate binder [a bituminous emulsion of SS grade; in special situations, a medium curing (MC) cutback] be used for both, prime coat and tack coat in appropriate quantities as detailed in Tables 4 and 5. The practice of using a straight-run bitumen for prime and tack coats must be discontinued.

3. Design of Concrete Pavements

3.1 The Guidelines contained in IRC: 58-2002 are essentially intended for high volume heavily trafficked highways. They are likely to result in uneconomical designs for the low volume Rural Roads. The Rigid Pavements Committee of the IRC have recently finalised the guidelines for the design and construction of concrete pavements for Rural Roads. Though they are yet to be published, they can be used for the PMGSY programme. Keeping this in view, the essential features of the design guidelines are given below.

3.2 Wheel Load

Concrete pavements for Rural Roads shall be designed for a wheel load of 3 tonnes. In very special circumstances where heavy commercial vehicles are likely to use the road, the design may be based on a wheel load of 5.1 tonnes.

3.3 Tyre Pressure

The tyre pressure may be taken as 0.7 MPa.


PAVEMENT DESIGN

3.4 Design Life

Concrete pavements designed as per these guidelines are expected to have a life of at least 20 years.

3.5 Subgrade Strength

The approximate value of the Modulus of Subgrade reaction, k, can be found out from the CBR value as per the Table 6.

Table 6

Soaked CBR % 2 3 4 5 7 10 15 20 50 100

k Value kg/ cm2/ cm 2.1 2.8 3.5 4.2 4.8 5.5 6.2 6.9 14.0 22.2

3.6 Sub-base

A sub-base of 75mm thick of Water Bound Macadam (Grade III: 53-22.4mm size aggregates), Wet Mix Macadam, gravel, murram, soil-cement or soil-lime is recommended. Where loaded heavy trucks are expected, this thickness may be increased to 150mm. The surface may be primed with bituminous primers to render it smooth. Where the sub-base is provided, the effective k value may be taken as 20% more than the k value of the subgrade.

3.7 Concrete Strength

The minimum 28-day compressive strength of concrete shall be 25 MPa, which gives a flexural strength of 3.0 MPa.

3.8 Critical Stresses

The slab may be checked for:

(a) a combination of edge load and temperature stress


PAVEMENT DESIGN

(b) corner load

The edge load stress can be calculated from the Westergaard’s Formula:

σlc =

where σle = edge load stress in kg/ cm2

P = design wheel load, kg, h = pavement slab thickness, cm µ = Poisson’s ratio, may be taken as 0.15

E = Modulus of elasticity of concrete, which may be taken as 3.0x105 kg/cm2

k = Modulus of subgrade reaction, kg/ cm2/cm l = radius of relative stiffness, cm

= b = radius of equivalent distribution of pressure

= a for

= – a = radius of load contact assumed circular, cm

= where p is tyre pressure Corner load Stress

σlc = Temperature Stress


PAVEMENT DESIGN

σte = where σte = temperature stress in the edge region,

∆t = maximum temperature differential during day between top and bottom of the slab, α = Coefficient of thermal expansion of concrete, C = Bradbury’s coefficient, which can be ascertained directly from Bradbury’s chart against values of L/l and W/l L = slab length or spacing between consecutive contraction joints W = slab width l = radius of relative stiffness

Values of the coefficient C based on the curves given in Bradbury’s chart, are given in Table 7.

Table 7 Values of co-efficient ‘C’ based on Bradbury’s Chart

L/l and W/l C1 0.0002 0.0403 0.1754 0.4405 0.7206 0.9207 1.0308 1.0759 1.08010 1.07511 1.050


PAVEMENT DESIGN

12 and above 1.000

Charts for C are given in Fig. 4.

Temperature differential between the top and bottom of concrete pavements causes the concrete slab to warp, giving rise to stresses. The temperature differential is a function of solar radiation received by the pavement surface at the location, losses due to wind velocity, etc., and thermal diffusivity of concrete, and is thus affected by geographical features of the pavement location. As far as possible, values of actually anticipated temperature differentials at the location of pavement should be adopted for pavement design. For this purpose guidance may be had from Table 8.

Table 8 Recommended Temperature Differentials for Concrete Slabs (Ref. 16)

Zone StatesTemperature Differential, °C in Slabs

of Thickness

15cm 20cm 25cm 30cm

i.Punjab, U.P., Uttaranchal, Rajasthan, Haryana, Gujarat and North M.P., excluding hilly regions. 12.5 13.1 14.3 15.8

iiBihar, Jharkand, West Bengal, Assam and Eastern Orissa excluding hilly regions and coastal areas.

15.6 16.4 16.6 16.8

iii

Maharashtra, Karnataka, South M.P., Chattisgarh, Andhra Pradesh, Western Orissa and North Tamil Nadu excluding hilly regions and coastal areas.

17.3 19.0 20.3 21.0

ivKerala and South Tamil Nadu excluding hilly regions and coastal areas. 15.0 16.4 17.6 18.1

v Coastal areas bounded by hills. 14.6 15.8 16.2 17.0


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vi Coastal areas unbounded by hills. 15.5 17.0 19.0 19.2

3.9 Charts

Ready-made charts for the determination of stresses are enclosed.


GUIDELINES ON USE OF LOCAL MATERIALS


1. Use of Better Granular Soil

Well-graded soils with low plasticity index values have better engineering properties and should be reserved for use as improved subgrade/ sub-base or surfacing in the case of earth roads. Such soils can be identified by their high Proctor density and low PI values.

2. Stabilisation of Local Soils

A variety of techniques are available for stabilising local soils for improving their engineering properties, but not all the techniques are applicable to all types of soils. A brief description of the stabilisation mechanism and applicability of the individual techniques are given in Table 1. This may be referred to for choosing the most appropriate technique for stabilising the soil at site. The mix proportions are generally worked out in the laboratory based on soaked CBR value.

3. Use of Naturally Occurring Low-grade Marginal Materials

Low grade marginal materials like moorum, kankar, dhandla, laterite etc where available within economic leads, should be made use of in pavement construction to the maximum extent feasible. The material may occur in a graded form or as discrete blocks or admixtured with soil. The manner of using these is indicated in Table 2.

4. Use of Bricks and Overburnt Brick Metal

In alluvial plains where hard stone aggregates are normally not available within economical leads, the general specification adopted for sub-base and base courses is to provide brick soling. Either flat bricks or bricks on edge or broken



brick ballast can be used depending on the thickness requirements. The bricks should be of good quality and well burnt. Before laying flat bricks or brick-on-edge, it is desirable to provide a cushion of sand above the earth subgrade.

Table 1

Mechanism and Requirements of Soil Stabilisation Techniques

Sl. No.

Technique Mechanism Application

1. Mechanical stabilisation

Blending missing fractions (e.g., clay with sand and sand with clay) so as to produce a mass of maximum possible density with plasticity within limits. A smooth grading similar to that given by Fuller’s grading rule is adopted to work out the proportion of the missing fractions to be blended.

Sands, moorum/ gravel having missing fractions and clayey soils can be stabilised by this technique.

2. Lime stabilisation

Lime in hydrated form reacts with the clay minerals in the soil to cause (i) immediate reduction in plasticity and increase in CBR because of cationic exchange, flocculation and agglomeration, which may be reversible under certain conditions, and (ii) long term chemical reaction with the clay minerals to produce cementitious products which bind the soil for increased strength and stability.

Medium and heavy clays having a PI of at least 10 and containing at least 15% of materials finer than 425 micron are suitable. However, some soils though containing clay fractions may not produce the long-term chemical reaction because of the presence of organic matter (> 2%), or soluble sulphate/carbonate (> 0.2%) etc. For lime stabilisation to be successful, it will be desirable to test the soil for lime reactivity. A soil whose 7-day



unconfined compression strength

increases by at least 3 kg/cm2 with lime treatment can be considered lime reactive.

3. Cement stabilisation

The hydrated products of cement binds the soil particles, the strength developed depending on the concentration of cement and the intimacy with which the soil particles are mixed with cement. A high cement content of the order of 7-10% can produce a hard mass having a 7-day compressive strength of 20

kg/cm2 or more, and this usually goes by the term soil-cement. However, a smaller proportion of 2-3% cement can improve the CBR value to more than 25, and the material going by the term “cement-modified soil” can be advantageously used as sub-base/base for rural roads.

Generally, granular soils free of high concentration of organic matter (<% or deleterious salts (sulphate and carbonate <0.2%) are suitable. A useful rule for soil selection is that the plasticity modulus (product of PI and fraction passing 425 micron sieve) should be less than 250 and that the uniformity coefficient should be greater than 5.

4. Lime-flyash stabilisation

Lime chemically reacts with the silica and aluminium in flyash to form cementitious compounds, which bind the soil.

Soils of medium plasticity (PI 5-20) and clayey soils not reactive to lime can be stabilised with lime and flyash.

5. Bitumen stabilisation

Bitumen binds the soil particles. Clean graded sands can be stabilised by this technique.



6. Two-stage stabilisation

This generally applies to heavy clays. The clay is treated with lime in the first stage to reduce plasticity and to facilitate pulverisation. In the second stage, the resulting soil is stabilised with cement, bitumen, lime or lime-flyash.

Heavy clays.

∗∗ Fuller’s grading rule is given by :

Percent passing sieve = 100 x

Table 2 Manner of Using Soft Aggregates in Pavement Construction

Sl. No.

State of Occurrence of Material

Manner of using in pavement Construction

Test/ Quality Requirements

1. In block or large discrete particles

As water bound macadam without screenings/ filler in accordance with IRC : 19, after breaking the material into required sizes.

Wet aggregate impact value (IS : 5640) not to exceed 50, 40 and 30 when used in sub-base, base and surfacing respectively.

2. Graded form without appreciable amount of soil

Directly as a granular layer for sub-base/ base or surfacing.

PI should be 4-9 when used as surfacing and should not exceed 6 when used in lower courses. Evaluated for strength by soaked CBR.

3. As discrete particles mixed with appreciable amount of soil such as soil-gravel mixtures.

Directly as soil-gravel mix for sub-base, base or surfacing.

The material should be well graded and the PI restricted as for Sl. No. 2. Evaluated by soaked CBR.



Notes on Improving the engineering properties:

(i) Improving gradation – Sieving out sizes not required and blending with missing fractions.

(ii) Reducing plasticity – Stabilisation with lime

(iii) Improving strength – Materials with appreciable soil fraction can be stabilised with lime (where PI is high), lime-flyash or cement.

5. Water Bound Macadam

Water Bound Macadam (WBM) is one of the most common specifications being adopted for construction of sub-base, base and surfacing courses. Broken stone, crushed slag, overburnt brick metal, laterite or kanakr of acceptable quality can be used as the coarse aggregate for WBM.

6. Low Cost Alternative Specifications

India is a vast country with divergent environmental conditions in different areas ranging from mountainous terrain to plain terrain and from deserts to coastal and water logged areas. Also there exists a wide range in the subgrade soil types, rainfall, traffic patterns and availability of various construction materials. Since specifications for rural road construction depend on the type of terrain and other environmental conditions, certain low-cost alternative specifications maximising the use of local materials have been tried out on full scale on a large number of low volume roads for different sets of conditions as under:

• Plain Areas : Indo-Gangetic Plains • Black Cotton Soil Areas • High Rainfall Areas • Water Logged Areas • Hilly Areas • Desert Areas



Long-term performance of each of the test tracks made in the above sets of conditions were evaluated and successful alternatives worked out. The various low-cost alternatives are given in Figures in Annexure 4.5 In general, 20 to 40% savings can be effected by the adoption of these low cost techniques.

7. Use of Waste Materials

There is a variety of waste materials which, if available close to the construction site of a rural road project, can be utilised to advantage. The various waste materials that can be incorporated in rural road works are :

• Flyash − in road embankments − in lime-flyash stabilised soil − in lime-flyash bound macadam

• Iron and Steel Slag − in lieu of stone aggregates in WBM

• Rice Husk Ash − in lime-rice husk ash concrete

• Recycled Concrete Aggregates − in cement concrete − in water-bound macadam (WBM)

• Other Waste Materials like quarry waste etc

8. Flyash

(a) In road embankments :

A matter of environmental concern is the contamination of ground water due to heavy metal leaching which can best be prevented by providing an earth cover. The thickness of earth cover on the side slope should be in the range of 1 to 3m, depending on the height; the earth cover for embankments upto 3m height will be about 1m, which



should be increased in flood-prone areas. Typical cross-sections of embankments with alternate layers of flyash and with core of flyash are given in the Rural Roads Manual. The soil cover should be considered as a part of the composite embankment for purposes of stability analysis. It must be recognised that the engineering properties of flyash being highly variable, proper testing will be necessary while dealing with any particular flyash. Typical geotechnical properties of flyash are given in the Rural Roads Manual.

The PI of soil cover should be around 5-9. In salt infested areas, chemical testing of soil will be necessary. The subgrade/ earthen shoulder material should have minimum compacted dry density of 1.75 gm/cc when tested according to IS-2720 (Part 8).

(b) In Lime-Flyash Stabilised Soil

Use : In Sub-base/ Base courses

Lime-flyash stabilised layer can be used, without admixing soil.

Fly-ash : Fly-ash may be either from anthracitic coal or lignitic coal. Flyasn to be used in lime fly ash stabilisation shall conform to the requirements set forth in the Rural Roads Manual.

Lime : Should be quick lime. If pre-slaked at site, it should be used within 7 days.

Slaked Lime in airtight bags can be stored for about 3 months.

Generally, purity (by weight of CaO) should not be less than 70%.

For lower purity lime, the quantity can be proportionately increased.

Soil : Granular soils free from high concentration of organic matter or deleterious salts and sandy soils with fine silts are better suited. Normally, soils with PI 4 to 20 are suitable; proportion of particles finer than 425 micron : 15 to 25%.

Mix Properties : Should meet the following requirements:



• Provide adequate strength and durability• Easily placed and compacted.• Economy

Lime-flyash alone can be used, avoiding soil.

Mix proportions are designed to obtain minimum unconfined compressive strength of 1.5 MPa after 28 days curing

Ideally, lime and flyash should be mixed by weigh batching but volume batching can also be used.

Mix-in-place techniques are more economical

Soil pulverization requirements:ISS Percent Passing26.5 mm 1005.6 mm 80

Mixing can be done by a Rotavator.

Temperature during construction should not be less than 10°C in shade. OMC+2% is specified to compensate for loss of moisture during spreading.

Not more than 60 minutes should elapse between start of moist mixing and start of compaction process. Compaction should be completed within 3 hours of mixing.

Curing : Spread moist straw or sand and sprinkle water periodically for 7 days and lay subsequent layers to prevent drying out. Alternatively, spray a cutback or emulsion @ 0.7 to 1.4 litres/m2 within 30 minutes of completion of finishing operations.At the end of day’s work, a transverse construction joint for full depth should be made by chamfering at 30° angle.

(c) In Lime-Flyash Bound Macadam (LFBM)

• Coarse Aggregates : As per requirements of normal WBM

• Screenings : As per requirements of normal WBM



• Filler : A mixture of flyash, lime and moorum or sand or soil. Typical proportions of dry lime, flyash and moorum or sand or soil are :

1 : 2 : 9 Lime Flyash Moorum or sand or soil• Provide lateral confinement by constructing shoulders in advance corresponding to compacted thickness of LFBM.

• Apply screenings as in normal WBM

• After coarse aggregates have been rolled and screenings applied, apply filler. The filler should be prepared by proper blending of lime, flyash and sand or moorum or soil in suitable proportions. The required amount of filler material is spread uniformly over the stone metal surface. Enough quantity of water is then added while rolling so that the slurry penetrates into the voids taking care that the water used is not as profuse as in normal WBM.

• Setting and Drying : Cured for 7 days (moist). Hungry spots to be filled with screenings or binding material, lightly sprinkled with water and rolled. Only light motor vehicles could be allowed during curing. If bituminous surfacing is to be laid over the LFBM, it should be laid only after LFBM is completely dried.

9. Use of iron and steel slags in road works

Air cooled blast furnace slag and weathered steel slag can be used in place of stone aggregates to construct WBM layers and for mechanical stabilisation. Granulated blast furnace slag (GBFS), which is a Pozzolanic material, can be stabilised using lime and used for construction of stabilised layers and lime-GBFS concrete base/ sub-base. Addition of a small quantity of gypsum enhances strength. GBFS can also be used in place of granular sub-base provided it meets CBR requirements. Typical characteristics of iron and steel



slags are given in the Rural Roads Manual.

10. Lime-Rice Husk Ash Concrete

Rice husk is available as a waste material from rice mills where paddy is processed to obtain rice. Rice cultivation is carried out almost throughout India and rice husk is mostly burnt as a fuel. The ash obtained is thrown back to paddy fields. This ash is chemically similar to fly ash and possesses good binding characteristics in conjunction with lime and moisture. It is a Pozzolanic binder. CRRI has carried out extensive laboratory work to investigate the binder properties of lime-rice ash mixes and has recommended its use for lime rice husk ash concrete (Lime-RHA-concrete). The Lime – RHA - Concrete may be used as a sub-base / base course material in the mix proportions 1 : 2 : 9 (Lime : RHA : Sand + Coarse aggregate). If a little percentage (2 to 6 per cent) of gypsum is added the strength properties are greatly enhanced. The RHA is available freely at site in rural India and no haulage cost is involved.

11. Recycled Concrete Aggregate

Our country has a network of concrete roads built many decades ago and due to increase in traffic and axle loads, the pavements have badly cracked. The rehabilitation and maintenance is costly and time consuming. In certain areas where high quality natural aggregates are scarce, recycled concrete aggregates offer an excellent and economic opportunity. Studies on the use of recycled aggregate (properly graded and having strength greater than the concrete in which it is to be used) in cement concrete and in water bound macadam stone metal show that recycled aggregates with suitable modifications can be used again as a road pavement material in base/ sub-base and wearing coarses of road pavement in place of natural aggregate for low volume roads.



12. Other Waste Materials

Many other waste materials like processed municipal waste, quarry waste, marble slurry dust, other metallic slags are available in many parts of the country. Laboratory and field studies conducted on some of these materials have indicated that such materials can be utilised for construction of lower layers of pavement and/ or embankment. However, before embarking on use of such materials, detailed characterisation and design of mix through a reputed laboratory would be needed.

13. Use of Stone Aggregates

13.1 General

Stone aggregates have traditionally been used in the sub-base, base and surface courses of road pavements in India. These aggregates have to bear the stresses imposed by wheel loads on the pavement structure, and therefore should possess the following properties:

− resistance to crushing − resistance to abrasive action of traffic − resistance to impact by traffic − withstand the adverse action of weather − desirable shape (cubical), permitting only very limited proportion of the undesirable flaky and elongated particles

− adhesion to bitumen in the presence of water

For evaluating all of the above properties, elaborate testing facilities are needed, all of which may not always be readily available for rural road works. Based on past experience, only a few simple tests have been identified, for which, if the specified requirements are fulfilled, will ensure a satisfactory long-term



performance of the aggregates. The suitability in broad terms of the aggregates obtained from different types of rocks available in different parts of the country is indicated in the IRC Rural Roads Manual. Since stone aggregates are mostly used in WBM sub-base, base and surface courses and in the bituminous surface treatments, the required proportions of stone aggregates for these types of construction only are given in subsequent paragraphs.

13.2 Stone Aggregates in WBM/ Soil-Aggregate Construction (a) Physical Requirements For rural road works, the physical requirements for stone aggregates need to be laid down separately for use in wearing and base courses as also in sub-base courses (WBM is generally not recommended for sub-base courses, wherein soil-aggregate mixes can be used to advantage).

• It is considered enough to evaluable the strength of stone aggregate through an AIV (Aggregate Impact Value) Test, as shown in Fig. 4.5.6 in section 4.5. The crushing produced in an AIV apparatus (which does not require any electric connection for operation) by a standard 13.5 kg rammer when it falls 15 times through 375 mm on the sample (passing 12.5 mm and retained on 10 mm ISS) is determined by sieving the sample through 2.36 mm ISS). It may be mentioned here that an estimate of AIV can also be made by a still simpler test of water absorption (water absorbed by aggregates in 66 hours). The requirements of AIV and water absorption are given below:

Use AIV less than :

Water Absorption less than :



Wearing Course 30% 1.5%

Base Course 40% 3.0%

Subbase Course 50% 6.0%

• Although the proportion of flaky and elongated shapes (see Fig. 1) of aggregates should be limited as required by MoRT&H Specifications for highway works, it is considered sufficient for rural road works to restrict the proportion of only flaky shaped aggregates, the flaky shaped aggregates being relatively more objectionable than the elongated ones. The requirements of Flakiness Index Value (using the standard Flakiness Gauge, Fig. 2) are given below:

Use Flakiness Index not to exceed :

Wearing/ Base Course 30%

Subbase Course 40%

(b) Grading Requirements For determining the particle size distribution, a standard set of IS sieves is used (Fig. 3). The grading requirements of coarse aggregates are given in Table 3 while the grading requirements for screenings are given in Table 4. The grading requirements for soil-aggregates mixes are given in Annexure 4.2. The approximate quantities of coarse aggregates and screenings required for 100/75 mm compacted thickness of WBM for 10m2 areas are given in Table 5.

• Where crushed slag is used, its unit weight should not be less than 11.2 kN per m3 and the percentage of glossy material not more



than 20%. The sulphur content should not be more than 2% and the chemical stability should comply with the requirements of the appendix to BS 1047.

• Where relatively softer aggregates like brick jhana, kankar etc are used, the AIV must be determined in the wet state as per IS : 5640.

• In case any bituminous treatment is not going to be taken up soon after application of screenings, a Binding/ filler material having a Plasticity Index (PI) less than 6 may be provided, for preventing ravelling. The quantity of binding material will depend on the type of screenings. Generally the quality of required for 75 mm compacted thickness of WBM will be 0.06-0.09 m310m2 and 0.08-0.10m3/m2 for 100 mm compacted thickness.

Hand-broken stone aggregates generally yield relatively more cubical shaped aggregates and therefore are preferred in WBM construction.

Table 3Grading Requirements of Coarse Aggregates

Grading No. Size Range IS Sieve

DesignationPercent by weight

passing

1 90 mm to 45 mm 125 mm 100

90 mm 90-100

63 mm 25-60

45 mm 0-15

22.4 mm 0-5

2 63 mm to 45 mm 90 mm 100

63 mm 90-100

53 mm 25-75



45 mm 0-15

22.4 mm 0-5

3 53 mm to 22.4 mm 63 mm 100

53 mm 95-100

45 mm 65-90

22.4 mm 0-10

11.2 0-5

Table 4Grading for Screenings

Grading Classification Size of Screenings IS Sieve


passing the IS Sieve

A 13.2 mm 13.2 mm 100

11.2 mm 95-100

5.6 mm 15-35

180 micron 0-10

B 11.2 mm 11.2 mm 100

5.6 mm 90-100

180 micron 15-35

Table 5

Approximate Quantities of Coarse Aggregates and Screenings required for 100/75 mm Compacted Thickness of Water Bound Macadam (WBM)

Sub-base/ Base Courses for 10m2 Area

Classification Size Range Compacted thickness

Loose Quantity

Screenings

Stone Screening Crushable type such as Moorum or Gravel

Grading classification

& Size

For WBM Sub-base/ base course (Loose

quantity)


& Size

Loose Quantity



Grading 1 90 mm to 45 mm 100 mm 1.21 to

1.43 m3 Type A

13.2 mm 0.27 to 0.30 m3 Not uniform 0.30 to

0.32 m3


1.07 m3 Type A


0.24 m3

Grading 3 53 mm to 22.4 mm 75 mm 0.91 to

1.07 m3 Type B


0.24 m3

13.3 Stone Aggregates in Bituminous Surface Treatments (a) Physical Requirements For each of the two types of thin bituminous surface treatments recommended for rural roads viz premix carpet and one or two coat surface dressing, it is considered sufficient to evaluate the AIV. The AIV must be restricted to a maximum of 30%. As regards shape, only the proportion of flaky particles needs to be restricted, recommending a Flakiness Index (using a Standard Flakiness Gauge) of 30%. The water absorption of the aggregates must also be restricted to 1.5%. In addition to the strength and shape tests, two more tests need to be carried out for bituminous surface treatment works viz Soundness test for evaluating the durability of aggregates and the Coating and Stripping of Bitumen Aggregate mixtures to ensure that the bitumen will not strip off the aggregates in the presence of water. In the Soundness Test, carried out as per the IS 2386 Part 3, the loss in weight must not exceed 12% when sodium sulphate solution is used and must not exceed 18% when magnesium sulphate solution is used. In the standard Bitumen Stripping Test, carried out as per IS : 6241, the extent of stripping must not be over 15%. The Water Sensitivity Test as recommended for highway works is not considered necessary for rural road works. Similarly Polished Stone Value (PSV) test is not considered necessary for rural road works.

(b) Grading Requirements



It is to be recognised that the MoRT&H specifications for Surface Dressing are basically formulated for highly trafficked highways where the sprayed bitumen can work up under the traffic to coat the cover aggregates with bitumen. For the low volume roads in rural areas the stone chipping sizes have to be selected judiciously, as laid down in Table 6. The grading requirements for various nominal sizes are given at Table 7. On the basis of extensive R&D work done abroad notably in UK & Australia on the most appropriate rates of spread of bituminous binder for surface dressing, detailed methodology is outlined in Annexure 4.2. Adopting the methodology outlined in Annexure 4.2, surface dressing may be considered both suitable and economical for Indian conditions.

In regard to the open-graded premix surfacing, no grading requirements have been specified in the MoRT&H Specifications. However, the quantities of materials required for 10m2 of road surface for 20 mm premix are given in Table 8 using penetration grade bitumen and Tables 9 and 10 when bituminous emulsion is used as a binder. It may be pointed out that cost estimates show that a two-coat surface dressing is very significantly cheaper than a 20 mm open-graded premix.

Table 6Recommended Nominal Sizes of Stone Chipping (Millimetres)

Type of Surface

Approximate number of commercial vehicles with an unladon weight greater than 1.5 tonnes currently carried per day in the

lane under consideration

2000-4000 1000-2000 200-1000 20-200 Less than 20

Very Hard 10 10 6 6 6



Hard 13 13 10 6 6

Normal 19+ 13 10 10 6

Soft * 19+ 13 13 10

Very Soft * * 19 13 10

Note : The size of stone chippings is related to the mid-point of each lane traffic category. Light traffic conditions may make the next smaller size of stone more appropriate.

+ Very particular care should be taken when using 19 mm chippings to ensure that no loose materials remain on the surface when the road is opened to unrestricted traffic as there is a high risk of windscreen breakage.

* Unsuitable for surface dressing

Table 7Grading Requirements for Chips for Surface Dressing

IS Sieve Designation (mm)

Cumulative percent by weight of total aggregate passing for the following nominal sizes (mm)

19 13 10 6

26.5 100 – – –

19.0 85-100 100 – –

13.2 0-40 85-100 100 –

9.5 0-7 0-40 85-100 100

6.3 – 0-7 0-35 85-100

4.75 – – 0-10 –

3.35 – – – 0-35

2.36 0-2 0-2 0-2 0-10

0.60 – – – 0-2

0.075 0-1.5 0-1.5 0-1.5 0-1.5



Minimum 65% by weight of aggregate

Passing 19mm, retained 13.2mm

Passing 13.2mm, retained 9.5mm



Table 8Quantities of Materials Required for 10 m2 of Road Surface for 20 mm thick

open-graded Premix Surfacing using Penetration Bitumen for Cutback

Aggregate (a) Nominal stone size 13.2 mm (passing 22.4 mm sieve and retained on 11.2 mm sieve)

0.18 m3

(b) Nominal stone size 11.2 mm (passing 13.2 mm sieve and retained on 5.6 mm sieve)

0.09 m3

Total 0.27 m3

Binder (quantities in terms of straight run bitumen)

(a) For 0.18 m3 of 13.2 mm nominal size stone at 52 kg bitumen per m3

9.5 kg

(b) For 0.09 m3 of 11.2 mm nominal size stone at 56 kg bitumen per m3

5.1 kg

Total 14.6 kg

Table 9Quantities of Aggregate for 10 m2 Area

(A) Premix Carpet (a) Coarse aggregate nominal 13.2 mm size; passing IS 22.4 mm sieve and retained on IS 11.2 mm sieve

0.18 m3

(b) Coarse aggregate nominal 11.2 mm size; passing IS 13.2 mm sieve and retained on IS 5.6 mm sieve

0.09 m3

(B) For Seal Coat



Type A : 6.7 mm size (Passing 11.2 mm and retained on 2.36 mm

0.09 m3

Type B : Passing 2.36 mm size and retained on 180 mm)

0.06 m3

Table 10 Quantities of Emulsion Binder

(A) For Premix Carpet : 20 to 23 kg (B) For Seal Coat :

(a) for liquid seal coat (Type A) 12 to 14 g (b) for premix coat (Type B) 10 to 12 kg




1. Use of Better Granular Soil

Well-graded soils with low plasticity index values have better engineering properties and should be reserved for use as improved subgrade/ sub-base or surfacing in the case of earth roads. Such soils can be identified by their high Proctor density and low PI values.

2. Stabilisation of Local Soils

A variety of techniques are available for stabilising local soils for improving their engineering properties, but not all the techniques are applicable to all types of soils. A brief description of the stabilisation mechanism and applicability of the individual techniques are given in Table 1. This may be referred to for choosing the most appropriate technique for stabilising the soil at site. The mix proportions are generally worked out in the laboratory based on soaked CBR value.

3. Use of Naturally Occurring Low-grade Marginal Materials

Low grade marginal materials like moorum, kankar, dhandla, laterite etc where available within economic leads, should be made use of in pavement construction to the maximum extent feasible. The material may occur in a graded form or as discrete blocks or admixtured with soil. The manner of using these is indicated in Table 2.

4. Use of Bricks and Overburnt Brick Metal

In alluvial plains where hard stone aggregates are normally not available within economical leads, the general specification adopted for sub-base and base courses is to provide brick soling. Either flat bricks or bricks on edge or broken
