National Rural Roads Development Agency

CHAPTER 3
PLANNING
3.1 PREPARATION OF MASTER PLAN
3.1.1 The Need for a Master Plan
Connecting rural habitations through good quality all weather roads, which provide access to services and also
opportunities for the rural population to increase their income, is an important part of the socio-economic development
process. For sustainable development through rural roads, it is necessary that a proper Master Plan is prepared in order
that all activities relating to rural roads such as Construction, Upgradation and Maintenance can be taken up
systematically within the frame work of this Master Plan.
3.1.2 District Rural Roads Plan (DRRP)
The District Rural Roads Plan is a compendium of the existing and proposed road network system in the District which
clearly identifies the proposed roads for connecting the yet Unconnected Habitations to already connected Habitations/
All-weather roads, in an economic and efficient way.
The District Rural Roads Plan shall be prepared at two levels the Block and the District. Keeping in view the
convenience from the point of view 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 approved by the Intermediate
level (Block) Panchayat, it 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. Then Plan would be forwarded by the PIU to the Nodal Department/ SRRDA for the approval
of the State level Standing Committee. After approval, it would become the final District Rural Roads Plan, and would form
the basis for selection of road works under PMGSY, through the Core Network (see para 3.2.).
Errors and deficiencies may exist in the DRRP and Core Network, due to factual inaccuracies such as population data.
These may be detected at a later stage by the PIU, or the affected people may represent against the error. All detected
errors and deficiencies or representations regarding them shall be carefully examined by the PIU and action shall be taken
to amend or correct the DRRP wherever required. The approval of the State Level Standing Committee shall be obtained
through the SRRDA for all changes Concurrence os the NRRDA shall be obtained and thereafter changes should be
made in the OMMS.
3.1.3 Programme Implementation Unit (PIU)
As per PMGSY Guidelines and as detailed in Chapter 2, every State is 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.
In most States, the Public Works Department (PWD)/ Rural Engineering Service (RES) has 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 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 Institution. Care must also be
taken to see that the proposals of the MPs and MLAs, who have an intimate knowledge of their areas, are fully taken into
consideration while preparing/ finalising the Plans.
3.1.4 The Ten Steps in Preparation of DRRP
The Ten Major Steps in the preparation and finalisation of the District Rural Roads Plans are as under:
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Constitution of the Team.
Preparation of Data base.
Map preparation.
Preparation of a list of Unconnected Habitations and the selection of the optimal road links.
Consideration and approval by the Intermediate Level Panchayat.
Submission of the Block Level Rural Roads Plan to the District Planning Committee.
Scrutiny by the District Planning Committee.
Consideration and approval by the District Panchayat.
Forwarding of the District Rural Roads Plan to the State Level Standing Committee.
Vetting of the District Rural Roads Plan by the State Level Standing Committee.
3.1.5 Step-I: Constitution of the Team
The first step in the preparation of the Rural Roads Plan is the identification of the team who will perform the work at the
Block level. The Team, for this purpose, should ideally include the Sub Divisional Magistrate (SDM), the Sub-divisional
Police Officer or S.H.O, a Revenue Officer of suitable rank, the Block Development Officer (BDO), local officers of the
Transport and Agricultural Marketing Departments and Secretary of the Intermediate level Panchayat. The Assistant
Engineer of the PIU would be the member-Secretary. In areas with special characteristics, local officials of the Department
concerned should be included, if these characteristics impinge on rural transportation. The senior most officer (the
Sub-divisional Magistrate if possible) should be designated to lead the Team. The Chief Executive officer (Secretary) of
the District Planning Committee/ Chief Executive Officer, Zilla Panchayat/ District Collector would select the team for this
purpose.
The Team should arrange to collect data on all items required for the preparation of the Block-wise Road Plans. These are
as follows:
An authentic map of the Block on 1: 50,000 scale based on Survey of India Topo-sheets.
2001 Census Data.
Existing road maps and road inventory details.
Block/ District level Statistical Handbook.
3.1.6 Step-II: Preparation of Database
The Team should thereafter undertake the task of tabulation of Data, derived from secondary sources, relating to
Habitation and Rural Road inventory.
Habitation Level Data
Although Habitations with population of more than 500 persons only [ more than 250 in hill states (North-Eastern
States, Sikkim, Himachal Pradesh, Jammu & Kashmir and Uttaranchal), desert areas and tribal areas] are to be
taken up under the PMGSY, for the purpose of preparation of the District Rural Roads Plan, 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. This will enable the plan to have the depth necessary for long
term and broad based use.
Each habitation has to be given a specific code number. This code shall contain a combined identification of state,
District, Block and habitation code to make a unique alphanumeric code (see annexure-3.1).
The name and code number for State, District and Block along with the habitations are to be tabulated in Format-I
(Annexure-3.2). This Format gives the reference of the block and demographic and infrastructure data of
habitations under that block. The explanation of abbreviations and instructions for filling the Format-I is also given
in Annexure-3.2 as Instructions for filling Format-I. The last two columns of Format-I (annexure- 3.2) shall be filled
up after completing Format-II (Annexure-3.3). Planning
Road Inventory
A comprehensive inventory of all Rural Roads including Other Districts Roads (ODR) and Village Roads (VR) and
any other existing earthen roads having a Land Width of 5m or more is to be prepared at block level. The inventory
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details are to be filled up in format-II (Annexure-3.3). The annexure also provides the instructions for filling the
Format-II as Instructions for filling Format-II.
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-3.4).
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
Database 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 rigour and discipline exercised during the field
visit.
Condition Survey of Existing Rural Road Network
The inventory of the road network prepared as 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 data is needed for selecting
projects for upgradation or maintenance. A reference may be made to Chapter 14 for using the data for
maintenance management. To prioritise upgradation and maintenance operations, a condition survey of all the
Rural Roads in the Core Network shall be carried out periodically, the first survey results being incorporated into the
District Rural Road Plan itself. The first condition survey and the field verification of the road inventory can be
usefully done at the same time.
Pavement Condition Index
A Simple Pavement Condition Index (PCI) based on Visual Inspection or Driving Speed or riding comfort, already in
use in many States, would be used and prioritisation methodologies applied for determining Upgradation as well as
maintenance priorities. Details of the procedure for determination of the Pavement Condition Index (PCI) are given
in Para 14.9 and Annexure 14.7.
The PCI data is an integral part of the Online Management & Monitoring System (OMMS) and the data will be
included in the Road Master for each kilometre. The PCI data after collection in the manner described in
Annexure-14.7 will be entered into the OMMS database by the PIU and a District-wise output generated, copy of
which will be furnished to the State Rural Roads Development Agency. Another copy will be supplied to the STAs
for record. The Proforma is given in Annexure 14.8.
3.1.7 Step-III: Map Preparation
After the database has been prepared from secondary sources and verified through exhaustive field surveys, the Team
would commence the task of Map preparation. The exercise should be closely supervised by the Head of the Programme
Implementation Unit. Mapping should be done by trained draftsmen, who are normally available with all Engineering
Organisations/ Revenue Departments.
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 and the Road Inventory shall be incorporated. The map shall be drawn
indicating the following details:
Boundaries
All the administrative boundaries should be shown as below:
State and National, if any
District Boundary
Block Boundary
Road Network
The Road Network map should show the existing alignment (location) of National Highways, State Highways, Major
District Roads, Other District Roads, Village Roads and cart tracks etc, which have land width of 5 meters or more,
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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
National Highways
State Highways/ MDRs
All-weather Rural Road
Fair-weather Rural Road
(all existing cart-tracks, kutcha roads etc having land width 5m or more)
The Core Network (see para 3.2 below)
should be coloured Red, above the
all-weather/ fair-weather Rural Road Line
Cross-drainage Structure
Rivers & Canals
Lake
Places of Tourist Interest
Quarry Site
Market Centre
Health Services
Tehsil Headquarter
Educational Service
Sub Divisional Headquarter
Location of Habitations
The habitations shall be shown as under
Population > 1000
Population 500 999
Population < 500
The three digit Habitation Code should also be indicated beside shape code of each habitation. While numbering
the Habitations, it should be remembered that this will be a three digit code and would basically be the serial
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number of the Habitation in the Block after the habitations are arranged alphabetically.
Link Route and Through Route Identification
Link Routes are the roads connecting a single Habitation or a group of Habitations to Through Routes or District
Roads leading to Market Centres. Through Routes are the roads which collect traffic from several link roads or a
long chain of Habitations and lead it to Marketing centres either directly or through the higher category roads i.e.,
the District Roads or the State or National Highway. Link routes generally have dead ends terminating on a
Habitation, while Through Routes arise from the confluence of two or more Link Routes and emerge on to a major
Road or to a Market Centre.
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 Roads Plan, it should be ensured that the continuity is
maintained. Link Routes and Through routes will be distinguished on the Map by use of the Letter L and T
respectively followed by the relevant road code.
Colour Scheme of Map
The use of too many colours makes the presentation and interpretation of the maps difficult. Accordingly the
existing roads should be shown in black, while the ultimate Core Network (see para 3.2) 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 sizes is also indicated therein. All habitations should be code numbered in the
map.
All the Block level maps should then be integrated into 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 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.
3.1.8 Step-IV: Preparation of the list of unconnected habitations and the selection of optimal road links
Next, the Team has to undertake the task of using the available data and the information available from the Map to
prepare the Rural Roads Plan of the Block. 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.
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 from an eligible unconnected habitation to an existing All-weather road or to an already
connected 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.
Quite often, an Unconnected Habitation can be connected in more than one way. Often the Market Centre is in a different
direction from say, the Taluka Headquarters. In case a consensus is not easily reached, the choice from various alternative
links may need to be made on the basis of weightages accorded to different Socioeconomic services. Since PMGSY
envisages only single connectivity, it is necessary to choose the most efficient road link in terms of utility. The District
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Panchayat shall be the competent authority to select the set of Socioeconomic/ infrastructure variables best suited for the
District, categorise them and accord relative weightage to them. This would be communicated to all concerned before
commencing the preparation of the District Rural Roads Plan. Numbers of people benefited per unit cost, number of
persons having all weather access to a hospital/school etc are a few examples of services/factors.
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 thereof should be recorded. The Team would then prepare the Draft Rural
Roads Plan for the Block.
3.1.9 Step-V: Consideration and Approval by the Intermediate Panchayat
This Draft plan would be presented before the Intermediate Panchayat by the Leader or the Member- Secretary of the
Team preparing the Draft Rural Roads Plan for the Block. In this meeting, 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.
3.1.10 Step-VI: Submission of the Block Rural Roads Plan to the District Planning Committee
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, along with original map and all the Formats and Tables.
In its absence, the Plan would be submitted to the Chief Executive Officer/ District Collector. The Team would record its
views in case it feels that the Intermediate Panchayat has deviated from the Guidelines in this regard.
3.1.11 Step-VII: Scrutiny by the District Planning Committee
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.
After the Rural Road Plans have been received from all the Blocks, these 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, Transport and other concerned Departments, as Members. They should look into the deviations, if any,
made by the Intermediate Panchayat and the justifications therefore. They must ensure that the Road Plan is according to
the criteria given by the District Panchayat with respect to the Socio- Economic/ Infrastructure variables and also that the
proposals of the MPs and MLAs have been duly considered. If any provision made by Intermediate Panchayat or the
Team preparing the original plan is not as per the Guidelines, such provisions should be changed. The reasons thereof
should be mentioned clearly.
The Committee, after collating all the Block Rural Road Plans will prepare the draft District Rural Roads Plan as per the
format shown in Annexure 3.4. 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 enunciated in Para 3.3.
3.1.12 Step-VIII: Consultation with the District Panchayat and Elected Representatives and Approval of the DRRP
The Draft District Rural Roads Plan would then be presented to the District Panchayat by the Chief Executive of the
District Planning Committee. 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
Guidelines.
3.1.13 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 through the SRRDA to the State Level Standing Committee.
3.1.14 Step-X: Vetting of the District Rural Roads Plan by the State Level Standing Committee
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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
Planning 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 NRRDA
for record..
The District Rural Roads Plan would, henceforth, constitute the basis of preparation of projects 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 the Core Network along with project proposals under Pradhan Mantri Gram Sadak Yojana.
3.2 IDENTIFICATION OF CORE NETWORK
3.2.1 Core Network-Definition
The Core Network is the network of all the Rural Roads that are necessary to provide basic access to all the Habitations.
Basic access is defined as 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 eligible 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 extracted out of the total Network mentioned in the DRRP and consists of existing roads as well as the
roads required to be constructed to the as yet unconnected Habitations. However, it will not consist of all the existing
roads of the DRRP since the objective is to establish basic access i.e., one all-weather road connectivity to each
habitation.
3.2.2 Why Core Network
The Core Network has the following advantages:
It will help in optimising the requirements of fresh construction and upgradation, for ensuring connectivity to all the
Habitations.
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 network management within the District.
3.2.3 Steps Involved in Establishing the Core Network
The following four major steps are involved in establishing the Core Network.
Prepare Block Maps as part of the District Rural Road Plan process.
Identify the Market Centres.
Identify the Network of roads to provide single access to the eligible habitations.
Catalogue the roads by giving them code numbers.
These steps are explained below:
3.2.4 Preparation of Block Maps
The preparation of the Block Maps using topographical Maps at 1:50,000 scale has already been explained in Para 3.1.7
for preparation of the district Rural Roads Plan. It may be ensured 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.
Administrative office location like Block & Tehsil headquarters.
Gram Panchayat Headquarters, Patwari office etc.
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Health Service facilities (including veterinary facilities).
Educational Service Facilities.
Market Centres and Rural business hubs.
Places notified by State govt. as being of tourist interest.
Quarry Sites.
Market Centres, Administrative Centres like sub divisional headquarters and main roads which are outside the
Block boundary but serve the Habitations in the Block must also be marked, outside the Block boundary.
3.2.5 Identification of Market Centres and Rural Business Hubs
Before preparing 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. These are generally
located either on bigger roads or at the confluence of roads leading from a number of Habitations. Because they are easily
accessible from the rural hinterland and are linked to the main road network, they function as Rural Business Hubs and
generally have facilities for marketing of agricultural surpluses, Banking and telecommunication facilities, large stores for
agricultural inputs as well as consumer items (durables and consumables). Facilities like agricultural equipment repair
shops may also exist. Consequently they are likely to have developed public transport, Higher Education and Health care
facilities. The Market Centres should be identified using the data available from published Census records/information
available from Marketing Board/ local enquiries. For purposes of inclusion in the Core Network, market centres need to be
identified to the extent that the local villagers should be able to go to the Market centre and come back within the same
day. The maximum distance between a village and a Market centre would thus 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 because of road connectivity etc should be identified. All the Marketing Centres should be
marked on the Block Map.
3.2.6 Identification of the Core Network
There are three types of habitations in the Block Map those which are connected, having all-weather roads, (ii) those
which are not connected at all, (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 connections. In such a case, one road should be selected
using Socio- Economic infrastructural parameter criteria. 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, which would generally follow the alignment of an existing track. If there is more than one track, selection has to
be made on the basis of the parameters, as already explained in 3.1.8.
The Core Network Plan shall thus be prepared for the entire Block. It should be checked again that all the Habitations are
connected or will be connected to the nearby Market Centres, either directly or indirectly through other all-weather roads.
It is not necessary that each Habitation is directly connected to the Market centre in a hub-and-spoke configuration.
Going by the definition of an all-weather road given in Chapter-1, it is not necessary to provide a road to a Habitation that
is within 500 metres of an already connected habitation or an all-weather road. All such habitations should be treated as
falling on the concerned road.
Suggestions/ proposals received from elected representatives including MLAs and MPs, Panchayats, and local population
must be properly examined as these ca0n provide very useful 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, the fact that it will be used
primarily by the local people must be uppermost in the mind.
3.2.7 Numbering of Core Network Roads and Tabulation of Data
Operations Manual for Rural Roads Once the Core Network is identified, the details of all these roads should be listed in
the Proformae CN 1 to CN 6. The Proforma are given at Annexure 3.5. The data in the Proforma should be uploaded or
entered in the DRRP Module of the Online Management and Monitoring System (OMMS). For purpose of numbering, it is
always better to start with the North-East corner of the Block and workout clock-wise giving progressively higher numbers.
3.2.8 Miscellaneous
In some areas, even the Network of higher order roads like Major District Roads (MDR) and State Highways (SH) may not
be fully developed. Many of the major bridges may be missing. The investment in Rural Roads will not show expected
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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 the State PWD to incorporate these in their plans.
3.2.9 Approval of Core Network
The procedure to be adopted for the approval of the Core Network shall be the same as that for the Master Plan (Para
3.1).
3.3 IMPLEMENTING THE CORE NETWORK PLAN
3.3.1 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), at 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].
The CNCPL list will be prepared with the following format:
[Link].
Name
of
road
TR/LR
Code
in CN
Length
Population
served
Habs to be
connected
Present
status(earthen
track etc.)
Name & no.
of TR
associated
(CN Core Network / TR Through route / LR - Link Route)
The priortisation may be done in one of several ways, but whatever methodology is selected has to be uniformly applied in
the State. The basic features of the prioritisation methodology would have to be as follows:
The proposed links would need to be categorized in the Order of Priority at the outset.
Further prioritisation within the Order of Priority may be done with the State, District or Block as the planning unit,
as convenient.
For a given Order of Priority and a given planning unit, the listing can be on basis of total population benefited.
Further refinements in terms of population per Km. benefited, etc may be adopted if found useful.
Depending on whether State or District is the unit, the SRRDA or PIU will prepare the CNCPL (and CUPL, See para
3.3.3).
3.3.2 Prioritisation of New Connectivity Road Works in Annual Proposals
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, and to also enable full consultation with lower level Panchayati institutions and elected representatives.
Since the Core Network is now the basis for making Annual Proposals, and as given in Para 3.3.1 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 up-to-date CNCP List in order for them to indicate their choice of road works. 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
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District except when it is not feasible to execute the road work for reasons of non-availability of land etc. While finalising
the District proposal, the District Panchayat shall record reason for such cases.
3.3.3 Upgradation Works
Upgradation works will be proposed in a district only if no new connectivity remains to be taken up. The selection of roads
for upgradation will be done on the basis of a Road Condition Survey (Annexure 3.6) of the Core Network of the District
which will establish a Pavement Condition Index (PCI) on a rating scale of 1 to 5 (see Chapter 14, and Annexure 14.7).
After the Road Condition Survey is completed, a Comprehensive Upgradation Priority List (CUPL) for the District shall be
prepared.
The only exception is if the Through Routes in the District are in such poor condition that the new connectivity link does
not give all-weather farm to market access. In such cases, from the CNCPL, it is possible to identify such Through Routes
(called associated Through Routes) and conduct a Road Condition Survey for such roads only, in order to be able to
decide whether or not they need to be upgraded along with the new connectivity of the attached link road.
The Road Condition Survey results will first be entered into the PCI register and the Road Master under OMMS in all
cased. In cases where no new connectivity is involved, the PIU will then prepare the Comprehensive Upgradation Priority
List (CUPL) for the District based on the following:-
The roads to be included in the CUPL will necessarily be Through Routes already included in the Core Network.
Presently sealed-surface all-weather roads with PCI more than 2 and sealed-surface all-weather roads which are
less than 10 years old (even if PCI is less than 2) will not be taken up for upgradation.
i.
Priority-I will be Through Routes which are presently WBM roads. In such cases, upgradation will comprise of
bringing the existing profile to good condition (along with improvement in geometrics, necessary drainage works
and road signages) and providing the appropriate crust and surface as per design requirement.
ii.
Priority II are other fair weather through routes or gravel through routes or through routes with missing links or
lacking cross drainage. In such a case upgradation will consist of converting the road into an allweather one with
appropriate geometrics and all necessary provisions.
iii.
Priority III will be other through routes which are at the end of their design life, whose PCI is 2 or less, i.e., are
poor or very poor. In such road width, surfacing, etc., as per normal projected traffic requirements.
iv.
Within each priority class, qualifying roads will be arranged in order of population served (directly and through
population served in link routes), as a rough indication of traffic expected. However, States are advised to conduct
an Average Daily Traffic (ADT) Survey at the earliest. Based on the time at which the traffic survey is carried out
(such as Peak or Lean Seasons) the same is to be adjusted for seasonality in order to arrive at the Annual Average
Daily Traffic (AADT) count, which is the basis for the prioritisation as well as the design. (An axle load survey may
also be carried out, on selective basis, on the roads where heavy traffic is expected with wide variations in the Axle
Load Spectrum. Proposals for this purpose approved by NRRDA will be eligible for reimbursement of expenses).
v.
In case, in any District, the Through Roads defined in the Core Network do not belong to the Rural Roads category,
the main rural links (emanating from the Through Route) will be considered for upgradation on similar lines
indicated above. The basis for Prioritisation will be, in addition to PCI, the population served by the link in each
category. In such cases the selection will be validated by the STAs and data entry made in OMMS Road Master
accordingly after categorising them as main rural links (MRL).
vi.
Preparation of CUPL
The work of preparing the CUPL will be taken up only in those districts which are likely to complete new connectivity to
eligible habitations within the next 1 year. The list will be prepared District-wise for each Priority class on the following
proforma (where only a truncated portion of the road is to be taken under upgradation, only that portion needs to be
mentioned by chainage):-
District______________ Priority Class______________
Block
Road
code in
CN
Name of
Through
Route /
MRL*
Year of
Construction
Year of Last
Periodic
Renewal
Present
Surface
Type
PCI
Total Populations
of the habitations
served by the road
AADT
* where TR is not a Rural Road
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Verification of CUPL
The CUPL will be got verified on the ground on sample basis through the STAs and the NQM system before it is
processed for further approvals. The STAs will do 100% verification on the basis of the PCI data given by the District and
sample ground checking.
Approval
After the CUPL is prepared and verified, it shall be placed before the District Panchayat for approval thereafter it shall be
vetted by the State level Standing Committee (SLSC). After the District is eligible to take up upgradation works, annual
proposals will be made for upgradation in the same manner out of the CUPL, as new connectivity proposals are made out
of the Comprehensive New Connectivity Priority List (CNCPL).
3.3.4 Consultation with the Members of Parliament
The Comprehensive New-Connectivity Priority List (CNCP List) identified to connect unconnected habitations (along with
names of habitations and population served and length) or the Comprehensive Upgradation Priority List (CUPL) as the
case may be, should be sent to the Members of Parliament, to facilitate the Members of Parliament in making their
suggestions. It will be incumbent upon the District Panchayat to ensure that full consideration is given to the proposals
received from the Members of Parliament.
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.
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.
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 10 copies of the English version and 5 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
([Link]) may also be kept updated for this purpose.
3.4 DATA ENTRY IN OMMS
3.4.1 As soon as the DRRP is finalised, the PIU shall enter the data in the OMMS after logging in. Unless already entered,
Master Data for the district has to be entered first followed by the details of habitations (as per 2001 census) and roads
connecting them. Unless this data is entered, further data entry relating to the Annual Proposals, Execution of projects and
Expenditure cannot be entered, since for all these purposes, the road will have to be selected out of the DRRP (and infact
the Core-Network).
3.4.2 Operations Manual for Rural Roads Once the Core-Network roads are identified in the OMMS, the OMMS is enabled
to produce the CNCPL for the district and also, once the Pavement Condition Index has been entered, the CUPL.
Operations Manual for Rural Roads
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