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Transcript of Chapter 1_Introduction to Infrastructure
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Chapter 1: Introduction to Infrastructure
Chapter Outline
1.1. Introduction
1.2. What is Infrastructure1.3. Infrastructure and Economic Development1.4. Infrastructure and Social Development1.5. Characteristics of Infrastructure1.6. Infrastructure and Possible Roles of Actors1.7. Provisioning of Infrastructure and Services
Learning Objectives
After reading this chapter, the reader would become aware of the following aspects
related to infrastructure:
a. Definition of Infrastructureb. Importance of Infrastructure to Developmentc. Characteristics of Infrastructured. Roles of Various Actors in Infrastructure Creation and Service DeliveryRelevance
Over the last three decades, infrastructure has become a buzz word. The relevance of
infrastructure is reflected in the quantum of investment (~ US $ 800 billion, which is 2%of the world GDP) made annually to create and maintain infrastructure world over
(Morrow, 2008). An indicator of the growth in infrastructure sector is the increase in the
market capitalization of the Macquarie Global Infrastructure Index, which reflects the
stock performances of the infrastructure firms engaged in management, ownership and/or
operation of infrastructure. This index has grown from US $ 465 billion on March 31,
2000 (Morrow, 2008) to US $ 2,427 billion on March 31, 2008 (www.ftse.com). Rising
population, demographic changes, and positive macro economic trends are expected to
attract further investment in infrastructure, which has been growing at a rapid pace. India
expects to invest around US $ 1 trillion during 12th
Five Year Plan (2012-2017) as
against US $ 500 million targeted during 11th
Five Year Plan (2007-2012).
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1.1. IntroductionAccording to an online dictionary etymonline.com, the word infrastructure comes from
French origin. It has been used in English since 1927. The prefix infra means below and
hence infrastructure means below the structure. This word was initially used in the
military jargon.
Over the years, various researchers and policy makers have considered infrastructure with
slightly differing meaning as discussed in this chapter. Today, this word has become
more of an umbrella term. It refers to transportation (roads, railways, airports, sea ports,
inland waterways), energy (generation, transmission, distribution), water, sanitation,
sewerage, SEZs, industrial parks, townships, industrial clusters, IT parks, logistics parks,irrigation, healthcare, education, leisure and entertainment, retail, tourism, housing,
exhibition, and convention centers as infrastructure.
1.2. What is Infrastructure?At a conceptual level, infrastructure can be defined as the basic physical and/or
organizational structure required for the smooth functioning of an economy. It facilitates
production of goods and services, which have economic and/or social value eg., roads,
railway, electricity, water, health, education, IT etc.
Many researchers and policy makers also refer to infrastructure as social overhead
capital. Social because it is available to everyone (society at large) and not particularly
to one person, overhead because it is not tied to one part of production of goods or
services (rather allocated to various parts of production function), and capital because it
is used as a factor of production (input to production) in the economy. Capital is alsoused to connote the high upfront investments that are required to create infrastructure. In
other words, infrastructure (as social overhead capital) is a factor of production used to
create goods and services that are for everyone in the economy.
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Infrastructure should facilitate economic development, alleviate poverty, and sustain
natural environment. While economic development should encompass poverty alleviation
(through the trickle down effect) and sustain natural environment (through a sufficiently
long term perspective), it may not happen naturally since perspectives are often relatively
short term. Hence, we emphasize poverty alleviation since if society has to take-off,
poverty is going to be the millstone with tremendous externalities preventing economic
development. The third objective of sustaining natural environment is about how best to
use our natural resources, prevent environmental degradation etc. This objective gains
significance in the context of infrastructure, as it is very resource intensive.
Some policy makers and practitioners categorize infrastructure into economic and social
infrastructure based on the upfront investment required. Economic infrastructure
generally requires much higher investment as compared to social infrastructure.
However, there is no strict boundary bifurcating the two. It is more like a continuum
where high upfront investment end refers to economic infrastructure and low upfront
investment end refers to social infrastructure.
Infrastructure
Economic Social
Energy Telecom/IT Transport Housing Water supply Sanitation
Education Health
Figure 1-1: Economic and Social Infrastructure
At this point, we would like to highlight that some researchers use the term social
infrastructure in a very wide sense. Hall and Jones (1999) and Chin (2002) have defined
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social infrastructure as the institutions and government policies that make up the
economic environment within which individuals and firms make investments, create and
transfer ideas, and produce goods and services. Under this definition institutional set up
and legal environment would become a part of the social infrastructure.
These infrastructure can function in three different contexts: (i) urban, (ii) rural, and (iii)
cluster based development zones like industrial estates, agri parks, and special economic
zones. The context may bring their own challenges in provisioning of the infrastructure
and services. For example, provisioning of water in the urban context would primarily be
drinking water; in the rural context, it would primarily be irrigation; and in the context of
clusters, it would primarily be water for industrial use.
We provide some of the definitions of infrastructure as given by various committees and
institutions. These definitions have specific operational implications on areas like lending
norms, taxation, and investment incentivization etc.
1. Rakesh Mohan Committee (1996): Rakesh Mohan Committee was constituted as apart of the process to bring in changes in governance, upgradation and expansion of
infrastructure. The committee submitted its report in the form of India Infrastructure
Report 1996. It defined infrastructure as: electricity, gas, water supply, telecom,
roads, industrial parks, railways, ports, airports, urban infrastructure, and storage as
infrastructure.
2. Central Statistical Organization (CSO, 1996): Central Statistical Organizationkeeps record of the various infrastructure. For this purpose, it defines infrastructure
as: electricity, gas, water supply, telecom, roads, railways, ports, airports, and storage
as infrastructure.
3. Insurance Regulatory and Development Authority (2000): Insurance Regulatoryand Development Authority (IRDA) defines infrastructure to allow life insurance
companies to invest a portion of their investible corpus (current guideline says up to
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15%) in infrastructure. For this purpose, infrastructure has been defined as: road,
highway, bridges, airport, port, railways, road transport system, water supply project,
water treatment system, solid waste management system, irrigation project, industrial
parks, sanitation and sewerage system, generation-transmission-distribution of power,
telecom, project for housing, or any other public facility as may be notified in the
official gazette.
4. C. Rangarajan Commission (2001): Based on three characteristics of infrastructuresectors - natural monopoly, non tradability of output and creating externalities on
society: railway tracks, signaling system, stations, Roads, bridges, runways and other
airport facilities, T&D of electricity, telephone lines, telecommunications network,
Pipelines for water, crude oil, slurry, waterways, port facilities, canal networks for
irrigation, sanitation or sewerage.
Another set of three additional characteristics - high-sunk costs, non rivalness (up to
congestion limits) in consumption, and possibility of price exclusion - led to
identification of rolling stock on railways, vehicles, aircrafts, power generating
plants, production of crude oil, purification of water, ships and other vessels.
While identifying the above mentioned reports, the Commission recommended that
the list of infrastructure activities should be finalized by the Ministry of Statistics and
Program Implementation (MOSPI) on the basis of the characteristics mentioned
above.
5. Reserve Bank of India for Credit Facility (2004): Reserve Bank of India (RBI)defines infrastructure to identify the lending made in this sector by the various banks.
It defines infrastructure as developing or operating and maintaining or developing,
operating and maintaining any infrastructure facility that is a project in any of the
following sectors, or any infrastructure facility of a similar nature (this list would
change over a period of time based on government policy):
i. a road, including toll road, a bridge or a rail system
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ii. a highway project including other activities being an integral part of thehighway project
iii. a port, airport, inland waterway or inland portiv. a water supply project, irrigation project, water treatment system sanitation
and sewerage system or solid waste management system
v. telecom services whether basic or cellular, including radio paging, domesticsatellite service (i.e. a satellite owned and operated by an Indian company for
providing telecom service), network of trunking, broadband network and
internet services
vi. an industrial park or special economic zonevii.generation or generation and distribution of powerviii. transmission or distribution of power by laying a network of new
transmission or distribution lines
ix. construction relating to projects involving agro-processing and supply ofinputs to agriculture
x. construction for preservation and storage of processed agro-productsperishable goods such as fruits, vegetables and flowers including testing
facilities for quality
xi. construction of educational institutions and hospitalsxii.any other infrastructure facility of similar nature.
6. Income Tax Department (2005): For the purpose providing tax breaks, Income TaxDepartment defines infrastructure as: electricity, water supply, sewerage, telecom,
roads & bridges, ports, airports, railways, irrigation, storage (at ports) and industrial
parks.
7. World Bank (2006): Power, water supply, sewerage, communication, roads &bridges, ports, airports, railways, housing, urban services, oil/ gas production and
mining sectors
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8. The Economic Survey (2007): The economic survey presented by the Governmentof India recognizes infrastructure as power, urban services, telecommunications,
posts, roads, ports, civil aviation, and railways under infrastructure
9. RBI for Technical Commercial Borrowings (2007): For the purpose of commercialborrowing, RBI defines infrastructure as: power, telecom, railways, road including
bridges, sea port and airport, industrial parks and urban infrastructure (water supply,
sanitation and sewage projects)
10.Planning commission (2008): For the purpose of five year plans, PlanningCommission defined infrastructure as:
i. electricity (including generation, transmission and distribution) and R&M ofpower stations
ii. non-conventional energy (including wind energy and solar energy)iii. Water supply and sanitation (including solid waste management, drainage and
sewerage) and street lighting
iv. Telecommunicationsv. road & bridgesvi. portsvii.inland waterwaysviii. airportsix. railways (including rolling stock and mass transit system)x. irrigation (including watershed development)xi. storagexii.oil and gas pipeline networks
In the past, the Income Tax Department and RBI have modified the definition of
infrastructure based on the prevalent government policies to include certain industries
which need stimulus or special treatment for a particular period.
A comparison of the various definitions have been provided in the table below:
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Table 1-1: Actors and Possible Activities in Infrastructure
Source: www.infrastructure.gov.in
1.3. Infrastructure and Economic DevelopmentInfrastructure is considered as the backbone of any country as it affects economys
production function and hence economic growth. Production function is the most
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important channel that affects growth. There is abundance of literature which discusses
the contribution of infrastructure on output, productivity and welfare, both at conceptual
(theoretical) and empirical levels. Arrow and Kurz were one of the first to identify this
link in 1970 where they considered long term growth to be exogenously determined. The
model presented a positive relationship between infrastructure and growth. An
endogenous model of growth was developed by Barro in 1990 to demonstrate the
positive effects of infrastructure on growth. The details of these models can be referred
in any of the standard economics text books.
The empirical studies relating infrastructure and growth have been led by Aschauer
(1989). Most of the empirical works in this direction have focused the impact of
infrastructure on long term contribution to the level or growth rate of aggregate income
or productivity. However, the empirical studies are inconclusive about the causality part.
Apart from directly affecting the production function, infrastructure also drives growth
through other channels such as investment adjustment costs, durability of private capital,
and demand and supply of health and education services. Investment in infrastructure
enables a country to become competitive in provisioning of goods and services and
thereby helps in attracting private capital for investment.
Most of the researchers and policy makers believe in the positive affect1
of infrastructure
on an economy. However, the magnitude of the impact has been found to be varying
across countries. Empirical studies suggest that higher impact (measured on output,
growth, and production cost) is observed at lower levels of income (Briceno et al, 2004;
Romp and de Haan, 2005; Estache and Fay, 2007). The impact also depends on the state
and the extent of the existing networks since most of the infrastructure services are
provided through networks.
1 There are many authors who claim that causality is both ways between infrastructure and income
(economic growth). Since most infrastructure services are both consumption and intermediate goods
(Estache & Fay, 2007) endogeneity is bound to exist.
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1.4. Infrastructure and Social DevelopmentInfrastructure has been found to have disproportionate effect on the income and welfare
of the individuals. Infrastructure raises the values of assets that individuals hold (land,human capital, houses etc) and lowers the transaction costs (transportation, logistics,
information collection etc) incurred to access a market, both for inputs and outputs. The
values of assets in less developed area are much lower than those in comparatively
developed area. Similarly, the transaction costs are much higher for less developed area
as compared to those of developed area. Hence, any infrastructure development in less
developed area would take them closer to being competitive to the developed areas.
In order words, development of infrastructure in less developed areas would provide the
individuals residing in these areas a better chance to offer goods and services at a
competitive rate. Most of the people residing in the less developed areas are those with
lower income. Hence, infrastructure provisioning would provide a tool to overcome
poverty.
Social infrastructure includes development of rural roads, education, health facility, and
market developments i.e. both economic and social infrastructure. In India, over the last
decade, economic infrastructure in less developed areas has also attracted private capital
apart from government funding. However, social infrastructure has been provided mainly
by the government.
In 2004, Government of India also initiated its effort to attract private capital to social
infrastructure, both in urban and rural areas. While, the initiative has met with some
successes in urban areas, rural areas are yet to see many such projects with private
investments.
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1.5. Characteristics of InfrastructureInfrastructure is associated with a few unique characteristics. Some of these were also
referred while defining infrastructure. These are:
i. Economies of scale and scopeii. Essentiality of infrastructural servicesiii. Usage of a key national resourceiv. Benefits from users to non-usersv. Strong public interestvi. Non-exportabilityvii.Non-excludabilityviii.Non-subtractability
Economies of scale refer to reduction in unit cost as the size of a facility or scale
increases ie., as the output increases. It relates to supply side changes ie., increase or
decrease in the scale of production of a single product type. Economies of scope relate to
demand-side changes eg., change in scope of marketing/branding of different types of
products. In the context of infrastructure, economies of scale and scope are important
because it needs high upfront investment and has decreasing marginal cost. This tends to
create natural monopolies and hence necessitates regulation.
Along with the asset created (physical infrastructure), service is equally essential. In
economic infrastructure, the service part of infrastructure is essential to realize the
benefits of the infrastructure. For example, transport physical infrastructure (such as road,
railway track etc) has no value without transport services. However, in the total sense of
costs, the cost of service is relatively less in economic infrastructure as compared to that
of social infrastructure. This is true even in say the health sector, where we talk of hi-techhospitals with high investments. The service part of managing the assets does not receive
the same importance as the service cost of providing medical facilities to a patient.
Another important factor of infrastructure is that it typically uses a very key national
resource, which again brings it into the realm of requiring regulation. If we talk of ports,
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an important national resource, which we cannot easily throw away, is coastline. We
really need to worry about what is the best use of coastline. If we consider telecom, we
talk about the spectrum and the greatest tussle today in telecom development, and
telecom and broadcasting is that there is a convergence between these two - and all the
issues are tied around spectrum allocation. If we talk of road or rail, the key national
resource is not just land but it is contiguous land. The need for contiguous land brings a
host of issues/complexities with it. So, there are issues, which may go beyond viewing
things at an enterprise level.
We have the benefits of infrastructure - partly because it is overhead - being enjoyed by
not only the direct users but also by non-users. In fact, when arguments are made that
any infrastructure like say urban transport can never pay for itself, what is implied is that
direct user charges cannot probably pay for it, given the utility derived by the direct
users. However, given the benefits to non-users, urban transport as an activity is
economically viable for society at large and that is the reason why cities and societies
continue to provide it. A crucial challenge therefore is how to channelize funds from the
non-user, so that it goes back appropriately into the revenues and development of that
infrastructure. The above factors also bring in an element ofstrongpublic interest.
Typically infrastructure is created and consumed locally, and hence it is non-exportable.
However, telecom is now exportable with satellites, cell phones etc. In fact today, India
can and has in many ways taken advantage of what we claim as the cheaper labor
economy where banks of people in Bangalore, Delhi and Gurgaon provide key telephone
services (call center services) to companies abroad. So, in a sense, because of this
connectivity, there is exportability. The same is becoming true in power sector to some
extent.
Exclusion is important because of the idea of pricing to realize direct user charges.
Infrastructure services where direct user charges are to be levied, exclusivity becomes the
tool to coerce users to pay for the facility.
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By non-subtractability, we imply that infrastructure does not get reduced in any manner
with consumption. This is the fundamental cause for decreasing marginal costs. It also
helps in bringing in user charges. Wherever, subtractability operates, all the users may
not be charged uniformly as the level of consumption would be different for different
users.
As it appears from the above discussion, infrastructure is a complex area to work with
where public interest is strongly present. Hence, the roles of various actors in
provisioning of infrastructure become very critical. We deal with this in the next
subsection.
1.6. Infrastructure and Possible Roles of ActorsIn provisioning of infrastructure various actors may be involved. Figure 1-2 shows the
activities related to infrastructure provisioning (policy, development and delivery, and
regulation and checks) and the players (bureaucracy, political system, think tank, media,
judiciary, private developer, financial institutions and insurers, and users) possible
involvement in provisioning of the infrastructure facility.
Figure 1-2: Actors and Possible Activities in Infrastructure
Policy
Development and Delivery
Regulation and Checks
More Involved
Less Involved
Not Involved
Actors
ActivitiesBureaucracy Political System Think Tanks UsersMedia Judiciary Private Developer
Financial Institutions
and Insurers
The roles of these actors have been classified as more involved, less involved and not
involved. Bureaucracy may get involved in all the three levels of activities i.e. in policy
making, development and delivery, and regulation and checks. In policy making, the
bureaucracy is involved along with the elected representatives. They provide the requisite
information regarding existing infrastructure, possible impact studies, resource
requirements, and development across the world to the elected representatives to assist
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them in making the policy. Once the policy is declared, the operationalization of the
policy is also carried out by the bureaucracy. They decide on the delivery mechanism.
They are also involved in monitoring the progress and keeping a tab on the key indicators
of progress.
Political system, as discussed above, is involved in policy making and to a less extent
involved in development and delivery. Their involvement in development and delivery is
restricted to providing guidelines or monitoring broad key indicators. They are
insignificantly involved in regulation and checks.
Think tanks may be involved by the bureaucracy and political system in assisting them to
formulate policies. The think tank provides the domain expertise, knowledge recent
developments in the sector all over the world, and educated guess on the resource
requirement and impacts of the policy under consideration. Thus, they are capable of
contributing significantly whenever they are involved in policy making process. Their
involvements in the other two activities are insignificant.
Media creates public opinion and highlights certain aspects of the proposed infrastructure
and services to influence the policy making process and delivery mechanism. Their reach
to public allows them to contribute these two activities. They are involved deeply in
regulation and check processes where they can highlight and create mass movements
against any activity which may not be directly expected from policy or delivery
decisions.
Involvement of judiciary is limited to regulation and check. They act as a deterrent to
those who may violate the policy or proposed delivery mechanism for the provisioning of
the infrastructure. They are not involved in policy and delivery of infrastructure.
However, in rare cases, judiciary has shown active role in policy and delivery
mechanism, which would be discussed later in the chapter on role of judiciary in
infrastructure.
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Private developer is involved in development and delivery as government machinery
alone cannot delivery all the infrastructure. They are involved through a spectrum of
relationships ranging from simple contract to build own and operate level. They influence
the policy and regulation/check to a lesser extent as compared to other actors.
Financial institutions and insurers are also involved in development and delivery. They
are involved as the financiers of the project as they provide debt and equity to the project.
To a less extent, they influence policy and regulation & check stages by guiding the
financing instruments and risk sharing mechanisms.
Users are strongly involved in the delivery and regulation & check stages. They are the
primary beneficiaries of the project and hence they need to be involved in the delivery
process. They also create checking mechanisms in the system to ensure efficient and
effective delivery of infrastructure and services. To some extent, they are also involved in
the policy making as they evolve the political system and also select the policy makers.
While we have identified the roles which may be played by each of the actors in
infrastructure, we would discuss what may be the appropriate roles for each of them in
coming chapters.
While the above sections have brought out the importance of infrastructure, public policy
aspect of provisioning of infrastructure, and role of various players in infrastructure, the
next section discusses the important challenges in provisioning of infrastructure and
services on a sustained basis.
1.7. Provisioning of Infrastructure and ServicesInfrastructure has traditionally been provided by the government (public sector) in India.
The government provisioning of infrastructure and services have suffered from
inefficiencies in asset creation and poor service delivery. Demand has always been higher
than the supply. Given the strong public interest, large positive externality, non
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exportable nature, and inability of users to be able to pay had forced government to
provide infrastructure on its own. However, over the last decade, private sector has
participated in asset creation and service delivery in a big way. Road sector is a classic
example of the successful participation of private sector.
As per the 11th
five year plan, total investment in infrastructure has been envisaged to be
of the order of 494.4 billion USD (Table 1-2). It has been envisaged that private sector
participation would be encouraged to meet this investment demand. Private sector would
not only bring in efficiency and effectiveness but would also force demand side
correction by charging users to pay for the facility and services.
Table 1-2: Investment Envisaged in 11th Five Year Plan
Item \ Year 2007-08 2008-09 2009-10 2010-11 2011-12
Roads 513,520 543,180 587,290 679,010 795,160Railways 332,070 399,640 486,260 597,380 764,660
Ports 96,910 117,400 142,710 173,970 208,410Airports 62,230 64,590 68,140 72,960 79,560
Power (Electricity) 742,050 928,290 1,165,410 1,469,140 1,860,380
Telecom 330,750 398,340 502,930 634,080 803,900
Irrigation 270,020 338,390 426,250 539,460 657,180
Water supply and sanitation 258,400 311,100 378,680 465,550 577,540
Storage 37,770 40,980 44,460 48,240 52,340
Gas 29,840 34,540 40,050 46,510 54,070Total GCF in 11th Plan (15%spillover is assumed)
Rs 20,271,690 (US $494.43billion) @2006-07 prices
Source: www.infrastructure.gov.in
Government provisioning has also been supported by bringing in the merit good2
argument. Most of these infrastructure have some element of merit good nature and it is
not preferable to exclude anyone from these services and hence it becomes the
responsibility of the government to provide or pay on behalf of the users of these
facilities and services.
2 Pure public goods are are non-rival in consumption and non-excludable e.g. defense services of a country,clean air etc. There are also goods where exludability is possible by enforcing user fee or any othermechanism, but it is not preferable to do so e.g. education and health services.
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Private sector involvement brings in many challenges due to the nature of infrastructure
discussed in this chapter earlier. The natural monopoly status and demand-supply gap
makes infrastructure a good instrument for earning super natural profit. To save users
from being ripped, proper regulatory mechanism needs to be put in place.
At this point it is also important to recognize that even among the private players, interest
of those in asset creation business lies in the first few years (during construction phase)
while the service providers interest lies in longer period starting with completed assets.
The asset creator gets paid within the period of construction and the quantum is generally
much higher than those received during the service provisioning state. Thus the challenge
is also to shift the balance towards service provisioning so that the users are benefited the
most.
Chapter Summary
In this chapter, we discussed various definitions of infrastructure. At the conceptual level,
we defined infrastructure as the basic physical and/or organizational structure required
for the smooth functioning of an economy, which facilitate production of goods and
services. These goods and services have economic and/or social value eg., roads, railway,
electricity, water, etc. At the operational level, we discussed different definitions
proposed by various committees constituted in the past.
We also discussed the important characteristics of infrastructure which include
economies of scale and scope, essentiality of infrastructural services, usage of key
national resources, benefits from users to non-users, strong public interest, non-
exportability, non-excludability, and non-subtractability. While discussing these
characteristics, we learnt the complexities/challenges posed in provisioning of the
infrastructure due to above mentioned characteristics. We also discussed the roles of
different actors in conceptualizing and provisioning of infrastructure.
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Glossary
CSO: Central Statistics Organization
GDP: Gross Domestic Product
IRDA: Insurance Regulatory and Development Authority
MOSPI: Ministry of Statistics and Program Implementation
RBI: Reserve Bank of India
SEZ: Special Economic Zone
T & D: Transmission and Distribution
USD: US Dollar
Objective Questions
1. Which one of the following is not a key characteristics of infrastructure(a)economies of scale and scope, (b) non-subtractability, (c) use of a key resource,(d) non-exportability to a large extent
2. Pricing of infrastructure is possible because of(a)economies of scale, (b) subtractability, (c) rival consumption, (d) excludability
3. Users may not be charged uniformly in cases where(a)subtractability of infrastructure applies, (b) economies of scale works, (c)
economies of scope works, (d) high externality exists
4. Infrastructure is also referred as(a)Social underhead capital, (b) Personal Overhead Capital, (c) Social Overhead
Capital, (d) Social Capital
5. As per the definition of the Word Bank, which of the following is not aninfrastructure
(a) Irrigation, (b) storage, (c) gas distribution, (d) (a), (b), and (c)
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Exercise
1. Compare the definition of infrastructure adopted by RBI and IT Department overthe last ten years. Also, identify the reasons for including/excluding certain
sectors based on news analysis, RBI circulars, IT circulars, planning commission
documents, and any other source that you may come across.
2. Conceive any infrastructure around you that you think is essential. Detail out thecharacteristics and challenges of provisioning the infrastructure. Also, discuss the
roles of various actors in the conceptualization and provisioning of the same.
References
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