PMGSY
Briefing Book
December, 2012
BRIEFING BOOK
1.
Programme Objectives
1.1
Pradhan Mantri Gram Sadak Yojana (PMGSY) was launched on 25th December 2000 as a
fully funded Centrally Sponsored Scheme to provide All- weather road connectivity in rural areas
of the country. The programme envisages connecting all habitations with a population of 500 or
more in plain areas and habitations with a Population of 250 persons and above in Hill States
(North East, Sikkim, Himachal Pradesh, Jammu & Kashmir and Uttarakhand), the desert areas (as
identified in Desert Development Programme), the tribal areas and in 82 Left-Wing Extremists
(LWE) affected / Integrated Action Plan (IAP) Districts as identified by the Ministry of Home
Affairs and Planning Commission.
1.2
The PMGSY permits the Upgradation (to prescribed standards) of the existing roads in
those districts where all the eligible unconnected habitations of the designated population size
(refer Para 1.1 above) have been provided all-weather road connectivity. However, it must be
noted that Upgradation is not central to the Programme. In Upgradation works, priority should be
given to Through Routes of the Rural Core Network, which carry more traffic.
2.
Cabinet decisions of 7th August, 2001
The main decisions of the Cabinet for the Pradhan Mantri Gram Sadak Yojana (PMGSY) are as
follows:(i)
PMGSY will be a 100% Centrally Sponsored Scheme executed through State Government
Agencies.
(ii)
The primary objective of the Programme will be to provide connectivity by way of an Allweather road to all unconnected habitations with a population of 500 persons and above by the end
of the 10th Plan Period (250 persons and above in case of Hill States and Desert areas).
Upgradation, though not central to the Programme, would be allowed in cases where connectivity
is complete.
(iii) The total requirement of funds for the Programme is of the order of Rs. 60, 000 crore. The
available source of funds, i.e. 50% share of the cess on High Speed Diesel (HSD), as per the
Central Road Fund Act, being inadequate to finance a Programme of this magnitude, the Ministry
of Rural Development is authorized to take appropriate steps in coordination with the Ministry of
Finance to generate additional financial resources including by way of borrowings from, inter
alia, the External Funding Agencies such as the World Bank and the Asian Development Bank.
(iv)
Execution of the Programme will be in project mode through setting up of National Rural
Road Development Agency (NRRDA) to extend support to the Programme.
3.
National Common Minimum Programme (NCMP)
2
The National Common Minimum Programme (NCMP) of the UPA states that UPA
will pay special attention to augmenting and modernizing rural infrastructure consisting of roads,
irrigation, electrification, cold-chain and marketing outlets.
‘Augmentation’ would mean ‘new connectivity’ and ‘Modernisation’ would mean
‘upgradation and maintenance’ in the context of PMGSY.
In the Budget of 2005-06 the Finance Minister announced UPA Government’s goal to
connect all villages that have a population of 1000 persons and above (500 persons and above in
hilly/tribal areas) with a road as part of Bharat Nirman.
4.
Magnitude of the Programme
PMGSY is being implemented since 2000-01. It was estimated that about 1,72,772
habitations would require connectivity to be provided under the programme. Thereafter, based
upon requests from the State Governments for reconciliation, coverage of left out habitations by
some States that had proposed rectification to consider habitation as unit of connectivity (instead
of Revenue Village taken earlier), accounting for habitations connected under other Schemes,
deletion of non-feasible habitations, dropped out habitations, relaxation accorded by the
Empowered Group of Officers and habitations connected under other Schemes, the revised
number of total eligible unconnected habitations has become 1,58,891.
As on 31st December, 2012, 12, project proposals for providing connectivity to 1,26,179
eligible habitations have been sanctioned. The total cost of sanctioned projects, including the
projects for upgradation of roads under PMGSY is Rs.1,45,520 crore. Against this, Rs.1,02,658
crore has been released till 31st Dec. 12 including releases to the States, debt servicing of
NABARD loans, administrative costs etc. As reported by the States, till 31st Dec. 12, a total of
3,66,789 km roads including upgradation have been constructed and All-weather connectivity has
been provided to 89,382 eligible habitations (Annexure-VI(A). The Statement showing number of
eligible unconnected habitations under PMGSY may be seen at Annexure-I.
5.
Requirement of funds for PMGSY
5.1
As per the current price levels, the following is the requirement of funds for completion of
works sanctioned and in progress:
-
5.2
Value of proposal cleared as on
-Rs. 1,18,949 crore
1st April 2011
Amount released in Programme
- Rs. 84,731crore
Fund upto March 2011
Funds required for completion of
- Rs. 34,218crore
works already sanctioned
Assessment of funds required for works yet to be sanctioned on 1st April 2011 and due to
new additions of habitations and relaxations under PMGSY is given below in Table.
3
S.
No.
Table
(Rs. in crore- at 2010-11 prices)
Activity (ies)
Funds
required
Funds required for balance works
79,539
(ii)
Funds required for works yet to be sanctioned on 1st April 2011 and due to
new additions of habitations and relaxations
Outstanding NABARD Loan (Principal) and interest as on 01-04-11
(iii)
Left-out bridges on already sanctioned roads
8,000
(iv)
18,362
(vi)
Impact of left out Habitations in Rajasthan, Bihar and Manipur due to
Revision of their core network permitting to take habitations (as per
guidelines) instead of revenue villages as units of connectivity
Funds for New habitations of 250+ in 60 IAP districts
a. For new connectivity of habitations having population of 250-499 persons
in non-Sch V areas - Rs. 9,497 crore
b. Upgradation of selected roads - Rs. 1,000 crore
Impact of increase in length of bridges to 75m in IAP districts
(vii)
Impact due to snow fall/ landslides in Hill States
5,000
(viii)
Administrative Expenditure including for States, Quality Monitoring etc.
1,000
(i)
(v)
21,117
10,497
250
Funds required for the Proposed Relaxations for IAP districts, Special Category States,
Schedule-V areas and Desert areas
(ix) a)
Impact of relaxation in the eligibility norm for the State of Assam to
5,650
provide connectivity (including bridges) to habitations of population 250 to
499 (2001 census)
b)
Funds required for additional length of bridges in Special Category
States, Tribal (Schedule V areas) and States having Desert districts (as
identified in the Desert Development Programme)
(c) Funds required for providing connectivity to left-out habitations (as per
2001 census) and for upgradation of some selected roads in 60 IAP districts
(d) Funds required for providing connectivity to eligible habitations having
population of 100 to 249 persons (as per 2001 census) including bridges in
60 IAP districts
1,800
10,000
21,100
PMGSY-II
(x)
Funds required for launching of PMGSY-II from the first year of 12th Five
Year Plan on sharing basis as under:
- For Plain areas – 70:30 (Centre:State)
- For Hill States, Desert Areas, Tribal (Schedule V areas) and LWE/ 60
IAP districts – 80:20 (Centre:State)
For International Border Blocks in Hilly States – 90:10 (Centre:State)
Funds needed
15,000
1,97,313
4
5.3
Net funds required for completion of balance PMGSY projects including projection
of PMGSY-II –
Funds required for completion of works already sanctioned as on 1-st Rs. 34,218 crore
April 2011
funds required for works yet to be sanctioned on 1st April 2011 and Rs. 1,97,313 crore
due to new additions of habitations and relaxations under PMGSY
Total funds needed
Funds available in year 2011-12
Rs. 2,31,531
Rs 20,000 crore
Net fund required during 12th FYP (at 2010-11 prices)
Rs.2,11,531 crore
Say Rs. 2,12,000 crore
6.
Bharat Nirman
6.1
Targets under Bharat Nirman (Rural Roads component) :-
The President of India, in his address to Parliament on 25th February, 2005, announced a major
business plan for rebuilding rural India called ‘Bharat Nirman’. The Finance Minister, in his
Budget Speech of 28th February, 2005, identified Rural Roads as one of the six components of
Bharat Nirman and has set a goal to provide connectivity to all villages with a population of 1000
persons and above (500 persons and above in the case of hilly or tribal areas) with an All-weather
road by 2012.
6.2
Based on ground verification by States, 63,940 habitations were targeted (Core Network of
Bihar and Rajasthan is under scrutiny so this figure may likely to be increased) to be connected
under the programme. The physical target under the programme is as under:-
a.
New connectivity component:-


Habitations to be connected:
Road length to be constructed:
b.
Upgradation component:
Road length to be upgraded/renewed:
6.3
-
63,940 nos.
1,89,987 km.
-
1, 94,130 km.
Overall Progress under Bharat Nirman (rural roads component) during the period
2005-12:-
Overall Progress of habitation coverage and construction of road (both for new connectivity as
well as upgradation) up to the end of Dec. 12 under Bharat Nirman is as under:
5
S.No
Component
1.
No. of habitations to be
connected
New connectivity
(road length in kms.)
Upgradation of throughroutes (road length in kms.)
including renewal.
2.
3.
Overall
Target
(2005-12)
63,940
Achievement
upto Dec. 12
% achievement
against target
47,622
74%
1,89,987
1,52,985
81%
1,94,130
2,41,883
125 %
47,622 habitations (74%) have been connected upto Dec. 2012, by constructing 1,52,985 km. rural
roads. Projects for connecting 12,799 habitations (20%) are at different stages of completion. The
details of achievements, State-wise, under Bharat Nirman (rural roads component) for the period
2005-12 have been given in Annexures II (A) to II (C).
6.4
Projected Time Frame for achieving the residual New connectivity targets:-
Projected Time Frame for achieving the residual targets is indicated below:Projected Timeframe
Target
DPRs (Detailed Project Reports) cleared
Habitations connected upto Dec.’ 12
Balance in progress
Expected completion during 2012-13
Spillover to 2013-14
7.
Financial Outlays and Outcome Budget
7.1
Allocation and Expenditure
63,940
60,421
47,622
12,799
4,000
15,851
The year wise allocation of funds and the expenditure is as under:
Year
2000-01
2001-02
2002-03
2003-04
2004-05
2005-06
2006-07
Allocation
(Rs. in crore)
2500.00
2500.00
2500.00
2325.00
2148.00 + 320.00*
3809.50 + 410.50*
3725.62 + 1500*
Expenditure
incurred
(Rs. in crore)
6,529.93
+ 798
3,077.45
4,100.39
7,304.27
Remarks
Separate
year
wise
information not available
*
Assistance
ADB/WB.
from
6
2007-08
2008-09
2009-10
2010-11
2011-12
2012-13
(Supplementary) + 250 (RE)
3900.00 + 2600.00*
+
4500.00**
5530.15
+
2250.00*+
7500.00**
17840.00
(including
NABARD loan)
22399.80***
17789 + 2211* = 20000
10,618.69
**From RIDF Window of
NABARD.
15,161.98
18,832.92
14,910.98
10,946.41
5,441.82 #
# upto Dec.’2012
***The allocation was Rs. 22000 crore, however, Rs. 399.80 crore received from internal
savings and re-appropriation.
7.2
Outcome target and achievements
Prior to 2005-06, no specific physical targets were laid down. From the year 2005-06 onwards,
targets in terms of numbers of habitations to be connected and road length (in kms) to be
completed have been specified in the Outcome Budget. Year-wise targets and achievements are
given below:-
Length
(in Km.)
Habitations
(in nos.)
2005-06
Targets Achiev
ements
17,454 22,891
7,895
Length (in Km.)
Habitations
(in
nos.)
Length (in Km.)
Habitations (in nos.)
2006-07
Targets Achiev
ements
27,250 30,710
10,801
2007-08
2008-09
Targets Achiev Targets Achieve
ements
ments
39,500 41,231 64,440
52,405
8,202
9,435
14,015
11,336
18,100
14,475
Targets
55,000
13,000
2009-10
Achievements
60,117
7,877
2010-11
Targets
Achievements
34,090
45,109
4,000
7,584
2011-12
Targets
Achievements
30,566
30,995
4,000
6,537
2012-13*
Targets
Achievements
30,000
16,287
4,000
4,968
* Figures upto Dec.’ 2012
State-wise detail of outcome target and achievements for the year 2012-13 has been given in
Annexure V(D).
7
8.
Raising of Additional Financial Resources
8.1
ADB and World Bank Funding
Assistance from Asian Development Bank (ADB)
ADB has been providing the assistance to PMGSY programme in the States of Assam,
Chhattisgarh, Madhya Pradesh, Odisha, West Bengal, Chhattisgarh and Madhya Pradesh. Rural
Roads Sector-I Project (RRSIP) has been completed in Madhya Pradesh and Chhattisgarh.
Rural Roads Sector-II Investment Programme (RRSIIP) is being implemented in Assam,
Chhattisgarh, Madhya Pradesh, Odisha and West Bengal.
Rural Connectivity Investment Program (RCIP) of US$ 800 M has been approved on 17th
July 2012. The investment programme will finance the PMGSY in four tranches in the State of
Assam, Chhattisgarh, Madhya Pradesh, Odisha and West Bengal. PFR-1 for Tranche I of Rural
Connectivity Investment Programme has been filed on 15th May, 2012.
(i ) Rural Roads Sector I Project (RRSIP) (Loan No. 2018-IND): ADB has approved the loan
of US$ 400 million under Rural Road Sector I Project (RRSIP) to assist the implementation of the
PMGSY projects in the State of Madhya Pradesh and Chhattisgarh. A total of 9,574.7 km of Allweather rural roads connecting 3,207 habitations was constructed. Project was successfully
completed in June 2009.
(ii) Rural Roads Sector II Investment Program
Project 1 (Loan No. 2248-IND):
ADB has approved the loan of US$ 180 million under Multi
Tranche Financing Facility (MFF) to finance the sub projects in the State of Assam, Odisha and
West Bengal. The total length of 2,507 km connecting 1,497 habitations was constructed under
this project. The project was successfully completed in June, 2009.
Project 2 (Loan No. 2414-IND): ADB has approved the loan of US$ 77.65 million for the Batch
II Project in Odisha under Multi-Tranche Financing Facility (MFF). The project had provided the
connectivity of 1,013 km in Odisha connecting 231 habitations. The loan was closed on 31st
December, 2010.
Project 3 (Loan No. 2445-IND): A loan of US$ 130 million under Multi-Tranche Financing
Facility has been taken to finance the sub project of Batch II in Assam and West Bengal. The loan
was made effective by ADB on 5th January 2009. The project will provide the connectivity to 985
km in Assam and 843 km in West Bengal. Thereby, this project will also provide the connectivity
to 607 habitations in the State of Assam and 718 habitations in State of West Bengal. Loan will
be closed on 30th June 2013.
Project 4 (Loan No. 2535): A loan of US$ 185 million under Multi-Tranche Financing Facility
has been taken to finance the sub projects of Batch III in Assam, Odisha and West Bengal. ADB
has made effective this loan on 26th November 2009. This project will provide the connectivity of
rural roads for 871 km in Assam, 1,287 km in Odisha and 660 km in West Bengal. Thereby, the
project will connect 397 habitations in Assam and 517 habitations in Odisha and 704 habitations
in West Bengal. The loan was closed on 31st December, 2012.
8
Project 5 (Loan No. 2651): A loan of US$ 222.22 million under Multi-Tranche Financing
Facility has been taken to finance the sub projects of Batch IV in Odisha, Batch V and
supplementary Batch V in Madhya Pradesh, Batch III (lot II) in West Bengal and Batch IV in
Chhattisgarh. The loan has become effective on 29th October, 2010. This project will provide
connectivity of rural roads for 325 km in Chhattisgarh, 2,535 km in Madhya Pradesh, 1,512 km in
Odisha and 443 km in West Bengal. The project will thereby connect 428 habitations in Odisha,
895 habitations in Madhya Pradesh and 257 habitations in West Bengal. Loan will be closed on
30th June, 2014.
The status of ADB assisted Rural Roads Sector II Investment Project is as under:
Loan Data
Loan No.
2445-IND
Loan No.
2535-IND
Loan No.
2651-IND
ADB approval
26th September 2008
7th August 2009
6th July 2010
Date of Signing
10th November 2008
3rd September
2009
2nd August 2010
5th January 2009
26th November
2009
29th October 2010
Assam & West Bengal
Assam, Odisha &
West Bengal
Chhattisgarh, Madhya
Pradesh, Odisha &
West Bengal
US$ 130 million
US$ 185 million
US$ 222.22 million
US$ 113.033 million
US$ 184.775
million
US$ 141.269 million
1325
1343
1582
Length of the proposed
connectivity
1,828 Km
2,818 Km
4,815 Km
Length completed
upto March 12
1,489 Km
2,236 Km
2,318 Km
Date of loan closing
30.06.2013
31.12.2012
30.06.2014
Loan effectiveness
States financed
Size of Loan
Loan utilised upto Sept.
12
No. of habitations
proposed to be connected
(iii) Rural Connectivity Investment Program (RCIP):
ADB loan of US$ 800 M for Rural Connectivity Investment Program to assist PMGSY in the
States of Assam, Chhattisgarh, Madhya Pradesh, Odisha and West Bengal is under negotiations.
Indicative schedule for the first and the subsequent tranches is given below in Table:
Financing
ADB
Government
Total
Tranche 1
(in US$ M)
252
85.15
337.15
Tranche 2
(in US$ M)
200
98.12
298.12
Tranche 3
(in US$ M)
150
96.09
246.09
Tranche 4
(in US$ M)
198.00
117.55
315.55
9
(iv) Rural Connectivity Investment Program (Supplementary):
Proposed Rural Connectivity Investment Programme (supplementary) of US$ 500 M aims to
construct or upgrade all-weather 7,000 km of Rural Roads connecting the unconnected eligible
habitations and upgrading the already constructed roads to All-weather connectivity and taking
10% roads for research and innovative practices in rural road construction in the States of Assam,
Bihar, Chhattisgarh, Madhya Pradesh, Odisha and West Bengal.
World Bank assisted Projects:
The World Bank is assisting construction and upgradation of road works under the scheme in four
states with loan of $399.5 million (RRP-I). The details are as below:
World Bank Assisted Projects
Jharkhand, Rajasthan, Himachal Pradesh, Uttar
States
Pradesh
Appraisal Process Start date
April' 2002
Negotiation date
August' 2004
Date of Loan Agreement
October'2004
Closing Date
31st March, 2012
Loan Amount
US$ 399.5 m (Rs. 1760 crore)
Target upto March 2012 as per (PAD)*
US$ 399.5 m
Amount Disbursed
US$ 399.5 m
Loan Terms
10 yr. Moratorium + 35 year repayment.
Interest rate 0% for $ 300m, 1.53% for $ 100m.
* PAD - Project Appraisal Document
World Bank reimburses @ 90% expenditure incurred on works and 80% of the expenditure
incurred on consultancies.
Details of Progress of World Bank assisted projects is as under:Project Sanctioned
States
Progress upto Dec.’ 12
Amount
(Rs. in crore)
Length
(in km)
Expenditure
(Rs. in crore)
Length
(in km)
Himachal Pradesh
253.89
1328.33
226.73(89%)
1188.32 (89%)
Jharkhand
29.15
130.07
30.95 (106%)
125.56(97%)
Rajasthan
1212.55
6517.53
1062.34 (88%)
6291.20 (96%)
Uttar Pradesh
929.65
3036.46
723.22 (78%)
2347.50 (77%)
Total:
2424.89
11012.39
2043.24
9952.58
10
(Figure in bracket indicates percentage to sanctioned cost or road length – Annexure V(a)
Rural Road Project II (RRP-II)
A loan of US$ 1.5 billion (Specific Investment Credit) has been approved by the Board of the
th
World Bank on 20 December 2010 and signed on 14th January, 2011. This Programme is based
on programmatic approach to support the implementation of the PMGSY Rural Roads
programme disbursed against results. Project Period is 5 years from 2011 upto 2016. The
project has two components:–
–
Programme financing – US$ 1440 million
• 7 States, Himachal Pradesh, Jharkhand, Meghalaya, Punjab, Rajasthan,
Uttarakhand and Uttar Pradesh covered.
• Total 8,323 habitations to be covered, 24,174 Km length to be built. Total cost
US$ 1706 million.
Institutional Strengthening – US$ 60 million will support a Technical Assistance
program designed to strengthen the capacity of relevant agencies to implement the
program.
• R&D – US$ 11.9 million.
• Independent Verification – US$ 6.7 million.
• PMC – US$ 22.6 million
• Equipment – US$ 7.8 million
• Training the skill development US$ 11.00 million
Brief description of the project is given below.
#
State
1
2
3
4
5
6
7
Himachal Pradesh
Jharkhand
Meghalaya
Punjab
Rajasthan
Uttar Pradesh
Uttarakhand
Tentative Allocation
US$ m
215
223
238
111
443
200
276
Total
1,706
Total
Habitations
Length in km
819
2,724
2,209
4,133
515
1,625
0
1,062
2,734
8,651
1,590
2,401
456
3,578
8,323
24,174
The disbursement under the programme linked to various indicators called DLIs.
–
DLI – I: (50% of actual expenditure) Habitation Connectivity (60%, 26300 baseline),
FY 11 – 27600 (1300), FY 12 – 29400 (1800), FY 13 – 33600 (4200), FY 14 –
37700 (4100), FY 15 – 39500 (1800).
11
–
DLI – II: (20% of actual expenditure) Programme Planning and Implementation.
• Improved Planning: FY 11 – DPR Guidelines, FY 12 – Revised Operations
Manual, FY 13 – GIS in 4 States, FY 14 – Revised Book of Specifications,
FY 15 – 80% works fulfill DPR Guidelines.
• Effective Procurement: FY 11 – Procurement and Contract Management
Manual and Procurement Training, FY 12 – States implement contractor out
reach programmes, FY 13 – 70% contract awarded in 45 days, FY 14 – 80%
contracts awarded in 45 days, FY 15 – 90% contract awarded in 45 days.
• Improved Quality: FY 11 – SQM Reports on Web, FY 12 – States implement
1st and 2nd Tier fully, FY 13 – Citizen Monitoring Programme on Pilot, FY
14 – 90% works rated Satisfactory, FY 15 – 95% works rated Satisfactory.
• Effective OMMAS: FY 11 – Review of OMMAS by May, 2011, FY 12 –
Format prescription for Management Reports on OMMAS, FY 13, 14 & 15–
Management Reports on OMMAS.
–
DLI – III: (30% of actual expenditure) Effective Maintenance, FY 11 – Tracking
of Maintenance Expenditure, FY 12 – States to issue road maintenance policy and
guidelines, FY 13 – States to provide adequate funding, FY 14 – 60% of core
roads in formal routine maintenance and 60% in periodic maintenance contract,
FY 15 – 75% of core roads in formal routine maintenance and 70% in periodic
maintenance contract.
State-wise details of sanctions under RRP-II in Phase I till December, 2012
All in crore
S No.
1.
2.
3.
4.
5.
6.
7.
8.2
State
Himachal Pradesh
Jharkhand
Meghalaya
Punjab
Rajasthan
Uttar Pradesh
Uttarakhand
Total:
Entitlement
DPR
Cleared
975
992
1059
494
1971
1228
890
7591
230
651
95
490
1951
543
1919
5879
Works
Awarded
(up to
Dec,2012)
100
137
84
421
832
18
370
1962
Expenditure
( up to
Dec,2012)
52
39
7
108
323
3
47
579
Funding from NABARD:-
(i)
The requirement of funds for Bharat Nirman was estimated at Rs.48, 000 crore. However,
the availability of funds was estimated as under:Cess
Assistance from ADB/World Bank
Loan from NABARD
Rs. 16,000 crore.
Rs. 9,000 crore
Rs. 16,500 crore
12
Unfunded gap
Rs. 6500 crore
(ii)
The matter was discussed in the National Rural Infrastructure Committee (NRIC) chaired
by Hon’ble Prime Minister on 16.5.2005. The Planning Commission and the Finance Ministry
were advised to locate the additional funds for the programme. The matter was again discussed in
the second and third meeting of NRIC, held on 21.6.2005 and 5.10.2005 respectively when a
suggestion was made that separate window on Bharat Nirman may be created in NABARD to
fund the rural roads component of Bharat Nirman. Subsequently, the Cabinet in its meeting held
24.9.2006 decided as under.
 borrow funds from National Bank for Agriculture and Rural Development (NABARD) for
achieving the rural roads targets of Bharat Nirman.
 allow National Rural Roads Development Agency to act as the agency for borrowing funds
from the separate window under NABARD.
 amend the Central Road Fund Act, 2000 to enable borrowing and repayment of loan for
development of rural roads and for this purpose to introduce in Parliament the Central
Road Fund (Amendment) Bill 2006.
(iii)
A separate window was created under RIDF in NABARD with the allocation of Rs.
4,000 Crore during 2006-07 to augment funding for rural roads under ‘Bharat Nirman’. However,
funds could not be drawn during 2006-07 from this window in the absence of enabling amendment
to the Central Road Fund Act, 2000. This window continued during 2007-08 with an additional
allocation of Rs. 4,500 crore. The Central Road Fund (Amendment) Act, 2007 (28 of 2007) was
notified on 21.08.2007. Thereafter, a Tripartite Agreement for the loan of Rs. 16,000 crore was
signed on 27-09-2007 between Ministry of Rural Development (MoRD), National Rural Roads
Development Agency (NRRDA) and National Bank for Agriculture and Rural Development
(NABARD). Subsequently addenda were issued for enhancing the loan amount first by Rs. 500
crore on 20.11.2009 and second by Rs. 2000 crore on 31.3.2010. Thus, the tripartite agreement
with NABARD is for a total amount of Rs. 18,500 crore. Tripartite Agreement provides that:
 NRRDA shall make the payment of interest to NABARD on quarterly basis at the end of
each quarter i.e. 31st March, 30th June, 30th September and 31st December every year. The
first interest payment shall be made on the aforesaid dates occurring immediately after the
loan not with standing that such period may be less than 3 months. The interest shall be
paid by NRRDA on the first day of the succeeding English calendar month immediately
succeeding the quarter. However, if the first day of the succeeding quarter is a
Saturday/Sunday/Holiday, NRRDA shall pay the installment on the last working day of
the same quarter (March, June, September and December, as the case may be).
 NRRDA shall repay the loan in 5 equal annual installments within 7 years from the date of
each drawal. The first installment shall be paid on the first day of the succeeding English
calendar month immediately on the expiry of 36 months form the date of drawal and each
subsequent installment is to be paid at intervals of 12 months there from. However, if the
first day of the succeeding English calendar month is a Saturday/ Sunday/ Holiday,
NRRDA shall repay the installment on the last working day of the preceding month.
NABARD had released Rs. 18,500 crore to NRRDA till 31-03-2010. Repayment
of loan has commenced from the year 2010-11. Rs. 5,924.36 crore and Rs. 4,110.55 crore have
been paid towards principal amount of loan and as interest to NABARD respectively upto 30 th
September, 2012. The year-wise details of loan drawn from NABARD, interest and principal
amount paid to NABARD is as under:-:
13
Year
2007-08
2008-09
2009-10
2010-11
2011-12
2012-13
(upto 31st Dec. 2012)
Loan drawn
from
NABARD
4,500
7,500
6,500
Nil
Nil
Nil
Interest
Paid
59,79
410.62
879.85
1,192.12
1,114.14
643.19
(Rs. in crore)
Principal amount
repaid to NABARD
Nil
Nil
Nil
900
2,400
3,700
Balance of Rs. 11,500 crore is outstanding as on 1st Jan. 2013 towards repayment of the principal
amount to NABARD upto 31st March, 2017 as per details given below:(Rs. in crore)
Principal
Interest
amount reTotal Liability
Year
Payable
payable to
(2+3)
NABARD
1
2
3
4
2012-13 (payable in the
184.32
184.32
month of March 2013)
2013-14
747.50
3,700.00
4,447.50
2014-15
460.21
3,700.00
4,160.21
2015-16
230.03
2,800.00
3,030.03
2016-17
67.94
1,300.00
1,367.94
Total
1,690.00
11,500.00
13,190.00
9. Physical and financial target during 11th Plan
During the 11th Five Year Plan, it was proposed to provide connectivity to 86,904 habitations with
new connectivity of 1,85,244 km road length and upgradation of 77,276 km existing rural roads.
For this purpose, an outlay of Rs.81,801 crore was proposed.
However¸ the Planning Commission indicated an outlay of Rs.38,179 crore (GBS) at
constant price and Rs.43,251 crore at current price as the tentative outlay under 11th Five Year
Plan for PMGSY. In addition, Rs.16,500 crore would be made available from the RIDF Window
of NABARD. Thus, the total funds available during the 11th Five Year Plan would be Rs.59,751
crore at current prices as against the projected requirement of Rs.81,801 crore.
After repayment of principal amount towards loan taken/being taken from NABARD,
payment of interest for the loan, incurring expenditure for capacity building, administrative
expenses etc., the net funds available would be Rs.50,310 crore for PMGSY projects as per
following details:14
Year-wise availability of funds: (Rs. in crore)
Year
2007-08
2008-09
2009-10
2010-11
2011-12
Total
Budget
i/c EAP
6500
9000
10000
9000
8751
43251
Loan
from
NABARD
4500
6000
6000
16500
Interest
Payable
Principal
payable
Net
available
130
690
1080
1015
880
3795
900
2100
3000
10870
14310
14920
7085
5771
52956
Net excluding
admn.
expenses
10330
13600
14170
6730
5480
50310
Based upon the availability of funds, the physical targets would be as under:Year
2007-08
2008-09
2009-10
2010-11
2011-12
Total
Net available
(Rs. in crore
10330
13600
14170
6730
5480
50310
New Connectivity
(Km)
26000
36720
52722
11545
2720
129707
Upgradation
(km)
13500
29720
33620
12900
11000
100740
Habitation
12100
18100
22771
5000
2667
60638
Thus, the estimated targets for the 11th Five Year Plan would be as under:Period
Targets up to the year
2009 as per Bharat
Nirman
Target for 2010-12
Overall for the 11th
Plan
No.
of
Habitation
to
be
covered
Length for
new
connectivity
(Kms)
Length (km)
for renewal
(to be borne
by the State
Government)
62720
Length for
upgradation
(Kms)
(funded
under
PMGSY)
43220
30200
30438
60638
66987
129707
57520
100740
25759
76986
51227
Physical and financial target for 2008-09
Allocation for 2008-09 under PMGSY was Rs. 14,530 crore which included external aid (from
World Bank and Asian Development Bank) of Rs. 3000 crore and Rs. 7000 crore to be drawn as
loan from Rural Infrastructure Development Fund (RIDF) window of National Bank for
Agriculture and Rural Development (NABARD). The budgetary outlay for the year 2008-09 was
subsequently revised. The revised allocation for the year 2008-09 under PMGSY was Rs.
15
15,280.15 crore which included Rs. 4046.25 crore from cess, external budgetary support of
Rs.2,250 crore, budgetary support of Rs. 1483.90 crore and Rs. 7,500 crore from the RIDF
window of NABARD. It was targeted to provide all weather connectivity to 18100 habitations and
to complete 64440 km of rural roads (New Connectivity-36720 km and Upgradation–27720 km)
under PMGSY.
Physical and financial target for 2009-10
Allocation for the year 2009-10 under PMGSY is Rs. 14,000 crore which includes external aid
(from World Bank and Asian Development Bank) of Rs. 1350 crore and Rs. 4000 crore to be
drawn as loan from Rural Infrastructure Development Fund (RIDF) window of National Bank for
Agriculture and Rural Development (NABARD). The budgetary outlay for the year 2009-10 was
subsequently revised and Rs. 6500 crore was available from the RIDF window of NABARD.
During 2009-10, it is proposed to provide all weather road connectivity to 13,000 habitations
under Bharat Nirman with 24,000 km. of the new connectivity road length. In addition, 16,000
km. of existing rural roads is proposed to be upgraded for improving farm to market connectivity.
Physical and financial target for 2010-11
Allocation for the year 2010-11 under PMGSY is Rs. 22,000 crore which includes external aid
(from World Bank and Asian Development Bank) of Rs. 890 crore and re-payment of Interest to
NABARD, it is proposed to provide all weather road connectivity to 3,000 habitations under
Bharat Nirman with 14,320 km. of the new connectivity road length. In addition, 12,500 km. of
existing rural roads is proposed to be upgraded for improving farm to market connectivity.
Physical and financial target for 2011-12
Allocation for the year 2011-12 under PMGSY is Rs. 20,000 crore which includes external aid
(from World Bank and Asian Development Bank) of Rs. 2211 crore and re-payment of Interest to
NABARD, it is proposed to provide all weather road connectivity to 3,000 habitations under
Bharat Nirman with 12,000 km. of the new connectivity road length. In addition, 12,750 km. of
existing rural roads is proposed to be upgraded for improving farm to market connectivity. The
year wise release to States and expenditure incurred since inception has been given in Annexure
III (A) and III (B). The status of proposals pertaining to districts sharing international borders
and left wing extremist affected districts is at Annexure – IV.
10.
Clearance of Project Proposals
10.1
Phase-wise Progress;
So far, upto Dec‘12, project proposals for 1,24,105 road works including bridges measuring
4,81,535 kms. and valued at Rs. 1,46,828 crore have been cleared by this Ministry. The phase wise
details have been given in Annexure V (A) to V (C) and Statewise state Profile are as per
Annexure V (1-28). The year-wise physical and financial progress may be seen Annexure VI
(A) & VI (B). Statewise Opening balance of funds, Releases, Expenditure & Closing Balance
during 11th Plan may be seen Annexure VI (C) and Statewise Opening balance of Programme
funds, Releases, Expenditure & Closing Balance during 2012-13 upto Dec’2 may be seen
Annexure VI (D)
10.2
Projects cleared in 2009-10, 2010-11, 2011-12 and 2012-13 (Till Dec. 2012):
For achieving the Bharat Nirman goals, level of utilisation of funds needs to be stepped up 4-5
times. Recognising the fact that expenditure on projects can also be increased by sanctioning
16
more projects, projects valued at Rs. 21688.62 crore, proposed by 23 States, to cover 71342.82
Km of road length were cleared during the year 2007-08. During the year 2008-09, the Ministry
has cleared proposals of 25 States and one UT to cover a length of 90280.81 km at an estimated
cost of Rs. 36806.55 crore.
The Ministry, vide DO No. H-12013/1/2009-RC dated 12th June, 2009 advised the States to
submit project proposals falling only in the following four categories.




Residual new connectivity coverage envisaged under Phase-I of Bharat Nirman
Projects to be taken up with the assistance of World Bank and Asian Development Bank
New habitation connectivity in the 33 identified LWE affected districts
Special road connectivity packages announced for the border areas.
Proposals falling and the above four categories were considered and cleared by the Ministry.
During 2009-10, project proposals for Rs. 6194.47 crore covering a road length of 18561.34 km.
were cleared. During the year 2010-11, the Ministry has cleared proposals of 13 States to cover a
length of 15207.88 km at an estimated cost of Rs. 6768.33 crore. The State-wise details are at
Annexure VII(A). Details of Pre-Empowered Committee meeting are at Annexure VII (B) and
details of Empowered Committee meeting at Annexure VII (C) & (D).
10.3
Time period allowed for completion of projects:-
PMGSY is being implemented in accordance with the programme guidelines. In plain areas, the
projects are to be completed within a period of 9 working months from the date of issue of the
Work order. In case the period for execution is likely to be adversely affected by monsoon or other
seasonal factors, the time period for execution is extended up to 12 calendar months. Where a
package comprises more than one roadwork, the total time given for completion of the package is
12 months. In respect of hilly States where the work is executed in two stages, this time period
will apply separately in respect of each stage.
Time period for completion of projects (Stage I and CD works) under PMGSY has
recently been modified. The time limit up to 18 calendar months has been permitted for
completion of Stage-I works of hill roads (in hill States). Similarly, time period of 18-24 months
has been permitted for completion of cross drainage works exceeding 25 meter length, depending
on site conditions.
10.4
Recourse against delay
Since time is the essence of the contract, action is required to be taken against the contractor in
cases of delay, as per the contract provisions. Standard bidding document provides for two
courses of action against delay i.e. (i) Levying of liquidated damages if specified milestones are
not achieved within the given time frame and (ii) In case of persistent delay, the contract is liable
to be terminated.
10.5
Reasons for delay in implementation:-
Some of the reasons for delay in implementation of the PMGSY projects are: Non-availability of qualified engineers
 Administrative delay including late award of projects
 Inadequate capacity of the PIUs due to the smaller work load handled by them earlier.
17
 At Nodal department or the SRRDA’s level also lack of capacity by way of man power is a
constraint.
 A very long rainy reason.
 Most of the construction materials such as cement, steel, bitumen, machinery, personnel to
handle machinery etc. are not locally available.
 Lack of contracting capacity as well as non availability of basic road making equipment such
as road roller, crushing plants, dumper/dipper and trucks.
 Non availability of land or the land falling under forest areas.
10.6
Measures taken for increasing contracting capacity
An expert Committee was constituted to review the Standard Bidding Document. On the basis of
the recommendations of the Expert Committee, the following amendments have been made in the
Standard Bidding Document: Standard Bidding Document amended in September 2006 & package sizes from Rs.50 lakh Rs. 2 crore & Rs. 2 crore – Rs.10 crore allowed with differential qualification criteria to enable
more contractors to participate.
 Flexibility given to States in September 2006 to float packages above Rs.10 crore to induce
participation by big contractors.
 Joint ventures between big and small contractors permitted.
 For building capacity of the small and medium contractors, an interaction between contractors,
equipment manufactures, equipment leasing firms and financial institutions was held in
Madhya Pradesh and Orissa. One more interaction is planned in West Bengal.
 Performance incentive for timely completion introduced in September 2006 through higher
weightage in qualification assessment in future contracts.
10.7
Recent amendment in the Standard Bidding Document:-
As per the existing provision, performance security of 5% is obtained from contractors at the time
of execution of the agreement and another 5% is deducted from their running bills The Standard
Bidding Document has been amended and upfront performance security amount to be obtained
from the contractor has been reduced to 2.5%. The balance amount of 7.5% would be deducted
from the running bills of the contractor. The revision is expected to enhance the pool of eligible
contractors and thereby augment contracting capacity in the States.
11.
Review of Programme Implementation
Regional Review Meetings and Workshops are regularly conducted to sensitize the Implementing
Agencies in the States on how to implement PMGSY in a better way, with focus on project
formulation and quality monitoring. In these meetings, State level implementing agencies, State
Technical Agencies, Principal Technical Agencies and National Quality Monitors of all the States
are covered. The main issues covered in the Regional Review Meetings are – Planning & Core
Network, Capacity development, Progress of works, Quality management, Maintenance
management, On-line Management, Monitoring and Accounting System (OMMAS), Training,
Works accounting etc. Details of Review Meetings held during Financial Year 2010-11, 2011-12
and 2012-13 is as below:Financial Year – 2010-11
S.No.
Date
Venue
State(s) covered
18
01
22 July, 10
Bhubaneswar
02
03
23 July, 10
12August, 10
Bhubneshwar
Pune
04
05
13 August,10
31 August.10
Pune
Dehradun
06
10 September.10
Delhi
07
08
09
10
11
12
21 October, 10
22 October, 10
12 November, 10
8 February, 11
10 February. 11
24 February.11
Tawang
Tawang
Dehradun
Shillong
Kaziranga
|Jammu
Financial Year – 2011-12
S.No.
Date
01
21 June, 11
02
23 June, 11
Trivandrum
Lucknow
Patna
Bhubneswar
Odisha and West Bengal
07
5 July, 11
11 October, 11
26 - 27 October,
11
30 December,
11
13 January, 12
State(s) covered
Uttarakhand
Himachal Pradesh, Haryana and
Punjab
Kerala, Karnataka and Tamil Nadu
Uttar Pradesh
Bihar and Jharkhand
Guwahati
08
16 January, 12
Shillong
09
10
11
12
19 January, 12
24 January, 12
10 February, 12
2nd March, 12
Bhopal
Hyderabad
Jaipur
Srinagar
Assam, Arunachal Pradesh, Nagaland
and Sikkim
Meghalaya, Manipur, Mizoram and
Tripura
Madhya Pradesh and Chhattisgarh
Andhra Pradesh and Maharashtra
Rajasthan and Gujarat
Jammu & Kashmir
03
04
05
06
Venue
Mussoorie
Shimla
Bihar, Jharkhand, West Bengal,
Odisha and Chhattisgarh
Odisha PIU review
Maharashtra, Andhra Pradesh, Kerala,
Karnataka, Tamil Nadu and Gujarat
Maharashtra PIU review
Uttarakhand, Himachal Pradesh and
Jammu Kashmir
Madhya Pradesh, Rajasthan, Punjab,
Haryana and Uttar Pradesh
All NE States
Arunachal Pradesh PIU Review
Uttarakhand
Meghalaya PIU review
All NE States
J&K, Himachal Pradesh, Uttarakhand,
Punjab, Haryana and Rajasthan
PIU-wise review in the States of Assam, Chhattisgarh, Maharashtra, Orissa, Uttarakhand and West
Bengal was also carried out.
Schedule to hold the Regional Review Meetings during 2012-13
For the period April 2012 – Oct. 2012
Region
Eastern
Date
Apr 10-11, 2012
Location
Bhubaneswar
States covered
Odisha,
West
Jharkhand.
Northern
May 22-23, 2012
Shimla
J&K, Punjab, Haryana, Himachal
Pradesh, Uttarakhand, Uttar Pradesh.
Bengal,
Bihar,
19
Southern
Jul 10-11, 2012
Bengaluru
Central
Aug 02-03, 2012
Bhopal
Andhra Pradesh, Karnataka, Kerala,
Tamil Nadu, Goa.
Madhya Pradesh, Chhattisgarh
Western
Sep 13-14, 2012
Jaipur
Rajasthan, Gujarat, Maharashtra
North East
Oct 10-11, 2012
Guwahati
All North Eastern States
For the period Nov. 2012- Feb. 2013
S.No.
01
02
03
04
05
06
11.2
Name of States covered
J&K, Punjab, Haryana, Himachal
Pradesh, Uttarakhand, Uttar Pradesh
Rajasthan, Gujarat, Maharashtra
Andhra Pradesh, Karnataka, Kerala,
Tamil Nadu, Goa
Odisha,
West
Bengal,
Bihar,
Jharkhand
Madhya Pradesh, Chhattisgarh
All North Eastern States
Date of Meeting
Venue
23-24 Nov. 12
Chandigarh
26-27 Dec. 12
Pune
3-4 Jan. 13
Bengaluru
29-30 Jan. 13
Kolkata
14 Feb. 13
8-9 Mar. 13
Raipur
Imphal
Review of Focus States:
Keeping in view the time frame of Bharat Nirman and slow pace of achievement of set targets by
some major States, it was decided to closely monitor this component. In this context, Review
Meetings for stepping up the pace of implementation of Bharat Nirman were carried out in Focus
States viz. Assam, Bihar, Jharkhand, Madhya Pradesh, Orissa and West Bengal. Review meetings
with PIUs and State officials were carried out by the Directors of NRRDA/Ministry and the
progress and status of implementation of the Bharat Nirman component was reviewed in the above
States.
12.
Amendment in PMGSY Programme Guidelines
12.1
Consolidated Guidelines of 1st Nov. 2004
Government had last issued the Guidelines of the Pradhan Mantri Gram Sadak Yojana
(PMGSY) on 7th January, 2003. As a result of close interaction with the State Governments,
including Regional Reviews with the State Nodal Departments, Empowered Committee Meetings,
and Reviews at the Minister’s level, it was felt necessary to further clarify some issues in the
Guidelines relating to methodology of selecting roads, implementation through dedicated PIUs,
quality assurance and execution of works. Consequently, supplementary guidelines/clarifications
were issued on 5.3.04, 30.4.04, 5.7.04, 6.7.04, 16.7.04 and 25.8.04. All these clarifications and
details have been consolidated along with the decision to allow upgradation of associated through
Routes along with New Constructions, and the consolidated Guidelines have been circulated to
States on 1st Nov. 2004.
12.2
Amendment to Para 3.4 of the guidelines:20
Para 3.4 of the PMGSY Programme Guidelines has been amended by the Ministry vide
letter No. P-17023/38/2005-RC dated 29.02.2008. The said Para stands substituted as under:“Para 2.1 above refers to Population size of Habitations. The population, as recorded in the
Census 2001, shall be the basis for determining the population size of the habitation. The
population of all Habitations within a radius of 500 metres (1.5 km of path distance in case of
Hills) may be clubbed together for the purpose of determining the population size. In the blocks
bordering international boundary in the hill States (as identified by the Ministry of Home Affairs),
however, all habitations within a path distance of 10 km may be treated as cluster for this purpose.
This cluster approach would enable provision of connectivity to a larger number of Habitations,
particularly in the Hill/mountainous areas.”
12.3
Guidelines/ Norms for Pradhan Mantri Gram Sadak Yojana (PMGSY) –
Implementation in 82 Integrated Action Plan (IAP) Districts identified by Planning
Commission.
(i) All habitations in Integrated Action Plan (IAP) districts, whether in Schedule V areas or
not, with a population of 250 and above (in 2001 Census) will be eligible for coverage
under PMGSY.
(ii) In Integrated Action Plan (IAP) districts, cost of bridges upto 75 meters under PMGSY
will be borne by the Government of India as against 50 meters for other areas. For longer
bridges, pro rata costs beyond 75 meters and changes, if any, would be borne by the State
Government. Cost of causeways, however, irrespective of their length, will be fully borne
by the Government of India.
(iii)In case of LWE/ IAP districts, the minimum tender package amount is reduced to Rs. 50
lakhs.
12.4
Amendment in para 8.5 of the Programme Guidelines for Pradhan Mantri Gram
Sadak Yojana
Vide Ministry’s letter no. P-12015/8/201-RC (pt) dated 17.12.2008, the existing para 8.5 (v)
of the Programme Guidelines has been substituted as under:
8.5 (v): “Rural Roads constructed under PMGSY must have proper embankment and drainage.
Adequate number and type of Cross Drainage (CD) works, including causeways, where
appropriate, must be provided based on site requirements ascertained through necessary
investigations. Minor bridges (of single lane specifications only) may be provided where
necessary. In case the length of an individual bridge exceeds 15m, a separate DPR will be
prepared after site inspection jointly by the Superintending Engineer and the State Technical
Agency.
In case the length exceeds 25m, the project will be separately executed by the
engineering division of the State Government having jurisdiction and the pro rata costs beyond
50m and agency charges, if any, will be borne by the State Government. Cost of causeways,
however, irrespective of their length, will be fully borne by the Government of India.
Vide letter No. P-17025/39/2010-RC dated 7-10-2010 the existing para 8.5 (v) of the
Programme Guidelines has been substituted as under:
In LWE districts (as identified by the Ministry of Home Affairs, Government of India), further
amending para 8.5 of program guidelines amended on 17th December, 2008, cost of bridges up
to 75m under PMGSY will be borne by the Government of India. For long span bridges, pro
rata costs beyond 50m and agency charges, if any, will be borne by the State Government. Cost
21
of causeways, however, irrespective of their length, will be fully borne by the Government of
India.
12.5 Amendment in para 11.5 of the Programme Guidelines for Pradhan Mantri Gram
Sadak Yojana
With the use of annual State Schedule of Rates it is expected that on average the tendered value
would approximate the estimated value. All costs due to time over run, arbitration / judicial award
shall be borne by the State Government. In case the value of tenders received is above the estimate
that has been cleared by the Ministry, the difference (tender premium) pooled for the entire State
for works cleared in a phase / batch will be borne by the State Government. Corresponding data
changes in OMMAS should be endorsed by the SRRDA.
In case there is material change in the scope of work or quantities, prior approval of NRRDA shall
be obtained and difference absorbed in the District level surplus failing which net savings at State
level will be used for the purpose. Data change in OMMS in such cases would be made with
NRRDA authorisation.
12.6 Amendment to Para 18.4 of the PMGSY - Regulation of the Programme,
Administrative and Maintenance expenditure – sub-para
“(ix) in addition to the existing system of bank authorization, State Rural road
Development Agency (SRRDA) may adopt an alternative system in which each PIU will prepare
an authorization statement on the basis of bills passed by it every fortnight and send to the
SRRDA. The authorization statement shall contain the details of the payment namely name of
work and package number, name of authorized payee and his bank account number, sanctioned
amount of the project, expenditure on the project upto previous fortnight and amount payable to
him during the current fortnight for each package. Based on the authorization statement, the
SRRDA shall issue an authority letter/ online payment instructions to the bank to credit the
amounts in the accounts of the payees mentioned in the authorization statement under intimation
to the PIU for making necessary entries in the Cash Book”.
12.7 Addition to Para 19.3 of the PMGSY Programme guidelines 2004 regarding submission of
documents for release of funds to the SRRDAs.
13.
Executing Machinery
States have been advised to make the following institutional arrangements:
(i)
A State Rural Roads Development Agency (SRRDA) or similar body with distinct legal
status, to receive PMGSY funds and act as nodal point for rural road sector policy and
management.
(ii) Executional arrangements overseen at State Level by officers of the SRRDA including State
Quality Coordinator (SQC), Financial Controller, Empowered Officer, IT Nodal Officer etc.
(iii) Programme Implementation Units (PIUs) at Division/District Level for managing the
programme, accountable to the SRRDA.
(iv)
Arrangements for efficient management, including :Online Management, Monitoring and Accounting System (OMMAS)
3 tier quality control
22
Transparent tendering using Standard Bidding Document
(v) Separate Bank Accounts for ‘Programme’, ‘Administrative’ and ‘Maintenance’ funds,
centrally managed by the Agency and operated by the PIUs.
(vi) Each State Government shall set up a State-level Standing Committee (headed by the chief
Secretary or Additional chief Secretary) including all the main stakeholders of the
programme viz; Secretaries of the Departments of Rural Developments, Panchayats, PWD,
Forests, Finance, Revenue and Transport. The State Technical Agencies and State
Informatics Officer (NIC) may also be invited to participate.
The Committee shall vet the Core Network, the CNCPL and CUPL and shall clear the annual
project proposals. The Committee shall also
(a)
(b)
(c)
(d)
(e)
monitor progress and quality control.
resolve issues relating to land availability and forest/environment clearance.
oversee maintenance funding arrangements for the Core Network.
review capacity at SRRDA and PIU levels including financial management and on-line
monitoring; and
ensure convergence of development programmes including transport facilities on the
constructed roads.
14. Special interventions for States where State implementation capacity is
inadequate
(a) Bihar: - Tie-up with Central Executing Agencies
The Government of Bihar intimated the Ministry of Rural Development the consent on 28th June
2004 vide State Government’s Resolution that it would like to engage, on its behalf, Central
Agencies for implementation of PMGSY projects in the State.
Accordingly, Tripartite
Agreements were executed with Central PSUs - NHPC, NBCC, NPCC and IRCON –, the State
Government and the Ministry on 31st August, 2004 for execution of PMGSY projects in Bihar. 33
of the 37 districts of the State (Araria included in Purnea) have been assigned to these Agencies.
The remaining 4 districts have been assigned to CPWD. These Agencies have mobilised their
organisational resources and have commenced the implementation process.
(b)
North East/Hill States: - Tie-up with BRO & NBCC
The issue of slow progress of PMGSY in a few States figured in the Consultative Committee
Meeting on 10.4.2003. Visits of a Team of National Quality Monitors (NQMs) also indicated that
there were serious problems in North Eastern States including lack of security, inadequate
technical expertise, organisational deficiencies etc. and it was decided to explore whether, with the
concurrence of the State Governments concerned, outside Technical Agencies could be inducted
to impart the requisite professionalism to the execution of the Programme. After prolonged
negotiations, tripartite agreement was signed by M/s. NBCC Ltd., Government of Tripura and
Ministry of Rural Development by which M/s. NBCC Ltd. will execute PMGSY work in West
Tripura and South Tripura. Similar agreement has also been signed with M/s Hindustan
Steelworks Construction Limited for implementation of PMGSY works in North Tripura and
Dhalai districts of Tripura.
23
(c ) Jharkhand
The Principal Secretary, Rural Development Department, Jharkhand vide letter dated 20th
June, 2007, informed that the Government of Jharkhand has given their consent for execution of
PMGSY works through three Central Agencies, viz., M/s. National Buildings Construction
Corporation Ltd. (NBCC), M/s. National Projects Construction Corporation Ltd (NPCC) and M/s.
Hindustan Steel Works Construction Ltd (HSCL).
Tripartite Agreements have since been signed between the State Government of Jharkhand,
the Executing Agency and the Ministry of Rural Development. The details are given below:Tripartite
Agreement
with
M/s. NBCC Ltd.
Date of signing the
agreement
5.12.2007
M/s. NPCC Ltd.
11.12.2007
M/s. HSC Ltd.
20.12.2007
(d)
Districts where the agency will
implement the programme
Gumla, Lohardaga, and Garhwa
districts.
East
Singhbhum,
West
Singhbhum and Latehar districts.
Bokaro, Hazaribagh, Ramgarh,
Chatra, Dhanbad,
Koderma,
Giridih and Palamu districts.
Uttarakhand
In order to overcome the capacity constraints in the State, the State Government has been advised
in June 2005 that they may engage Project Implementation Consultants by outsourcing the tasks to
assist PIUs.
The State Government has also been advised in December 2005 that they may chalk out a detailed
work plan, also indicating any special efforts required for achieving the Bharat Nirman goals. The
Ministry has conveyed its willingness to consider all such options and extend all possible support
to the State Government, upon receipt of a detailed proposal from the State.
15
Measures taken to ensure quality and transparency
15.1
On-line Management, Monitoring and Accounting System (OMMAS)
In order to effectively monitor the entire Programme and bring about greater efficiency,
accountability and transparency in implementation, a modern web based On-line Management,
Monitoring and Accounting System (OMMAS) has been set up for the PMGSY. The main
Application Software Modules include Rural Road Plan & Core Network, Proposals, Tendering &
Contracting, Execution (Physical and Financial Progress), Quality Monitoring, Funds Flow and
Receipt & Payment Accounts (work accounts). One feature that sets OMMAS apart from other
software is its total transparency. One can start with national level abstract outputs and drill one’s
way through the State, District and Block level abstraction to the basic elements-the data building
blocks, which are ‘roads’, ‘habitations’ and ‘Rupees’. The web site is www.omms.nic.in. With the
stablisation of the Receipts & Payments Module of OMMAS, manual compilation of Accounts is
24
being dispensed with by State Rural Roads Development Agencies (SRRDAs). e-Payment, eProcurement and on-line processing of funds release proposals from SRRDAs to MoRD have been
added to it. Reports are also available in Hindi, Oriya, Gujarati and Tamil. To facilitate decision
making, a graphical Decision Support System ( DSS) has been added.
The website has a menu bar where “Feedback” appears prominently. The Feedback
Module has three sections viz. Comment, Complaint and Query. This Module is accessible by all
the citizens. Any complaint about the Programme can be entered through the Complaint Section of
the Modules.
Up-to-date data entry into the different modules of OMMAS is a prerequisite for efficient
on-line management and monitoring of the Programme. To facilitate SRRDAs in knowing the data
entry gaps on their respective part and other data entry levels, a new module – ‘ Online Data
Entry Status ‘ has been added to OMMAS. The module provides online status of data entry gaps
module
wise
across
all
the
States
and
State
wise
on
the
URLhttp://omms.nic.in/aspnet/citizens/dg/08datagaps/DataGapsType.aspx.
A Central Website has also been developed, which provides details of PMGSY Scheme,
Guidelines, agencies involved, role and responsibilities, etc. and can be accessed at
www.pmgsy.nic.in.
15.2
Standard Bidding Document
A Standard Bidding Document has been developed for the Programme after the study of
good procurement systems and best national and international practices. The work of
development of Standard Bidding Document was given to the experts of the field. The
procurement process and Standard Bidding Documents of various States, MoRTH, World Bank
and ADB etc. were studied and the development of draft documents was completed. The draft
was subjected to the process of thorough review and consultation by experts and the State
Governments.
The document has been prescribed for use by the Executing Agencies of the State
Governments with effect from 2003-04. The Standard Bidding Document has the following main
provisions:(i)
The tender will be invited for construction as well as maintenance of the road work for five
years.
(ii) The technical qualification of the contractor in terms of the bidding capacity, the experience
of civil engineering works and in relevant field, possession of requisite machinery and
equipments and financial capacity etc. will be evaluated before opening of the financial
offer.
(iii) The responsibility of establishment of Quality Control laboratory and mandatory testing will
be of the contractor and the contractor will be required to employ requisite engineering and
technical staff.
(iv) The funds for the construction will be provided through the Pradhan Mantri Gram Sadak
Yojana and the funds for maintenance of the road work for five years will be provided by the
State Governments.
Based on the experiences of the States by using the document and feedback from other
stakeholders, 9 amendments have been made in SBD.
25
15.3
e-Procurement under PMGSY
As per the PMGSY Guidelines, a well established procedure for tendering through
competition is required to be followed for selection of agencies to execute the projects sanctioned
under the Scheme. Keeping in view the comparative advantage of e-Tendering, the Ministry of
Rural Development had decided for eTendering w.e.f April, 2009 and presently all States are
procuring the works under PMGSY through e-Tendering. Details of e-Procurement made by the
States are enclosed as Annexure-VIII.
15.4
Quality Assurance Mechanism under Pradhan Mantri Gram Sadak Yojana
PMGSY Guidelines emphasize upon quality centered implementation strategies and
recognize quality as essence of the Programme. To bring execution of the Programme to the
desired high quality standards, a three tier quality management mechanism has been
institutionalized under PMGSY.
The first tier of this mechanism is in-house quality control at Programme Implementation
Unit (PIU) level. Objective of this tier is process control through mandatory tests on material and
workmanship at field laboratory. A Quality Assurance Handbook (in 4 volumes) has been
developed and provided to field functionaries to facilitate better understanding of the quality
control requirements, equipment and testing procedures, management systems and also to
rationalize the frequency tests. The concept of stage passing through prescription of testing by
various levels of field functionaries has also been introduced in order to ensure clear
accountability. Establishment of field laboratory has been linked with first payment.
The second tier is a structured independent quality monitoring at the State level in which
provision of regular inspection of works has been envisaged for product control. In this tier, every
work is to be inspected at three stages, i.e. initial stage, middle stage and final stage of
construction. In order to have uniform and structured inspections at the second tier, Technical
Guidelines have been prescribed to the States in August, 2010. These guidelines contain detailed
instructions for inspections and frequency of tests to be carried out. Under these guidelines, the
State Quality Monitors (SQMs) are also required to upload abstracts of inspections and 10 digital
photographs of each inspection on OMMAS. In view of limited availability of monitors in the
States, a standard document for outsourcing of State Quality monitoring has also been prescribed.
The statement showing quality grading of works inspected by SQMs in various States from
November 2010 to December 2012 is at Annexure IX (A)1 - Annexure IX (A)3.
Under the third tier, independent National Quality Monitors (NQMs) are deployed by
NRRDA for inspection of road works at random not only to monitor quality but also to provide
guidance of senior professionals to the field functionaries. The National Quality Monitors are
senior engineers retired from the State Governments or Government of India organizations,
empanelled on the basis of the criteria fixed by NRRDA. The NQMs are required to inspect the
works and record observations as per the prescribed guidelines. The guidelines for NQM
inspections have been made objective and based on defined methods of observation including
clarity on actionable points. Guidelines for photographic recording of inspections by NQMs have
also been prescribed. To ensure effective and uniform reporting of the quality issues, orientation
programmes are organized for NQMs in coordination with the Indian Academy of Highway
Engineers (IAHE).
26
The observations of NQMs are sent for action to the State Governments and Action Taken
Reports (ATRs) are monitored at NRRDA. In order to bring more transparency in the process,
States have been advised to widely publicize the NQM inspections.
An independent Selection Committee comprising Secretary General (IRC), Director
(CRRI), one subject matter specialist nominated by IRC and 2 members of STAs/PTAs considers
the CVs of fresh candidates and make recommendations for their empanelment as National
Quality Monitors (NQMs). The Executive Committee of NRRDA approves the empanelment of
NQMs. The performance evaluation of the existing NQMs is also carried out by an independent
Performance Evaluation Committee comprising officers from STAs/PTAs. The proceedings of the
independent Performance Evaluation Committee are placed before the Selection Committee for its
recommendations.
A year wise statement showing quality grading of works inspected in various States from
January, 2009 to December, 2012 is at Annexure IX (B)1 - Annexure IX (B)4 . A statement
showing Abstract of NQM/SQM inspection w.r.t. ongoing/completed works in various States from
January 2011 to December 2012 is at Annexure IX (C) & Annexure IX (D).
15.5
Citizen information boards
Citizen information boards are displayed in local language at prominent locations in the
benefited habitations indicating the volume of materials used in each layer of the pavement.
15.6
Inspection of PMGSY works by public representatives
State Governments have been advised to arrange joint inspection of ongoing as well as
completed works under PMGSY by Hon’ble MPs, Hon’ble MLAs and functionaries of Panchayati
Raj Institutions. The arrangements of joint inspection are as under: The Superintending Engineer concerned of the zone/region will request Hon’ble MP and Zilla
Pramukh representing that zone/region once in six months to select any PMGSY project(s) for
joint inspection. The schedule of joint inspection will be fixed as per the convenience of Hon’ble
MP/Zilla Pramukh.
 The Executive Engineer in-charge of a division will request Hon’ble MLA/Chairperson of the
Intermediate Panchayat concerned once in three months for joint inspection of any PMGSY
project(s) as per their choice and according to their convenience.

Similarly, the Assistant Engineer in charge of the sub-division will request the concerned
Sarpanch of the Gram Panchayat once in two months to select any PMGSY project(s) for joint
inspection. Joint inspection of the project(s) may be arranged as per their convenience.
16.
Sound Technical Base for PMGSY
The Rural Roads Manual has been approved and printed by the Indian Roads Congress (IRC) as a
Special Publication (IRC:SP-20:2002). This Manual provides a firm technical base for the road
works that are being taken up under the PMGSY.
27
In order to streamline the process of estimation and to standardise contracts, a separate Book of
Specification, Procurement & Contract Management Manual and a Standard Data Book
have been published in the IRC.
17.
Principal & State Technical Agencies
The Ministry have identified 60 State Technical Agencies (STAs), which are National Institutes of
Technology and Government Engineering Colleges of repute, in consultation with the State Governments
and the Central Road Research Institute, New Delhi, to advise and assist the Executing Agencies, on behalf
of the Ministry, on technical matters relating to PMGSY. The STAs are expected to scrutinise the project
proposals prepared by the State Governments, provide requisite technical support to the State
Governments, undertake Quality Control tests for the State Governments and undertake Training
Programmes and Research Projects at NRRDA’s instance.
The NRRDA has also identified 7 Principal Technical Agencies (PTAs), generally IITs, to act as the
Regional Coordinators of the STAs as well as the extended arms of NRRDA in the pursuit of its objectives.
The role and responsibilities of the PTAs include overseeing the activities of the STAs in the region,
training, R&D, quality audit etc. The list of STAs and PTAs is at Annexure X-A and X-B.
The Principal Technical Agencies have now been advised to check 2-3% of the number of Detailed Project
Reports cleared by the State Technical Agencies. Projected traffic volume, being an important design
parameter, has a significant bearing on cost of the road works. Similarly, recognising the need to test the
assumptions underlying traffic projections, the STAs/PTAs have also been requested to conduct traffic
volume studies on the roads constructed/improved under PMGSY upto December, 2003.
18.
Training and HRD
18.1
Training
Training of Engineers and personnel involved in implementation of PMGSY at PIU and SRRDA
level has been one of the interventions determining the quality of project out comes.
The training of PMGSY officials are conducted through SIRD’s located in each state. These
trainings are funded by grant to SIRD as per training rules. Specific courses to the requirement of
states have also been conducted through National Level training institutes. Such training are
funded by NRRDA and are conducted as per standard 2,3 and 6 days modules for training of
PMGSY Engineers developed by NRRDA.
Various training programme have been organized by NRRDA at National Level Institutes such as
Central Road Research Institute (CSIR), New Delhi and Indian Academy of Highway Engineers
(MoRTH, GOI), Noida, Uttar Pradesh for senior officers and at state level at various states
institutes of Rural Development for Junior Officers.
During the year 2011-2012 upto December, 2011 about 1582 officers have been provided training
on the basis of training module developed by NRRDA for 2,3 and 6 days by expert
faculty(Resource Persons) recommended by NRRDA for respective topics.
28
Further training calendar for 2012-2013 is being finalized based on the requirements of training of
personnel from all states. The requirement of training for next year will be fine tuned on the basis
of feedback received from the training programs organized earlier and state requirements.
Further National Institute of Rural Development (NIRD), Hyderabad under MoRD has also
planned to organize training for 12 programmes for PMGSY officers for skill development during
2012-2013.
18.2
National Conference and Exposition on Rural Roads
(a) National Conference on Asset Management on Rural Roads
Rural roads constructed under PMGSY or any other programme requires regular and timely
maintenance to keep them at least at minimum acceptable serviceability levels. However, as of
now, this is not happening as desired due to several reasons including constraints of resources and
lack of organized institutional arrangements.
Realizing the fact that the assets created are to be preserved through appropriate asset
management strategy, a national conference on "Asset Management on Rural Roads" was
organized during 28th and 29th April, 2009 at Hyderabad jointly by NRRDA and APSRRDA.
During the conference, three technical sessions, one group discussions and an experience sharing
session were scheduled, where administrators, state engineers, other senior engineers, subject
domain experts and representatives of multilateral organizations like, World Bank and ILO,
participated. Several issues were discussed during the conference and many key issues for
effective asset management were identified and deliberated upon.
(b) Interactive Workshop on performance of NQMs and STAs
An interactive workshop on performance of STA/PTAs and the NQMs was held at Bhubneshwar
during 12th - 13th Aug, 09. STAs from the States of Arunachal Pradesh, Assam, Bihar,
Chhattisgarh, Jharkhand, Manipur, Meghalaya, Mizoram, Nagaland, Orissa, Sikkim, Tripura and
West Bengal and NQMs and SQCs having their Head quarters in the States of Andhra Pradesh,
Arunachal Pradesh, Assam, Bihar, Chhattisgarh, Jharkhand, Karnataka, Kerala, Manipur,
Meghalaya, Mizoram, Nagaland, Orissa, Sikkim, Tamil Nadu, Tripura and West Bengal
participated in the Workshop. Newly empanelled NQMs also attended the workshop.
The workshop was held in two parallel sessions. In one session, the performance of STAs and
project scrutiny issues were discussed and in the other, the performance of existing NQMs along
with the training programme for the newly empanelled NQMs was carried out.
(c) Workshop on Government e-Procurement Project (GePNIC) for States dealing with
PMGSY.
Ministry of Rural Development has decided to procure PMGSY works through eTendering. In this
direction, a workshop on Government e-Procurement Project (GePNIC) for States dealing with
PMGSY Programme was organized during 15-16 September, 2009 wherein experts from NIC,
officials of NRRDA and MoRD and representatives of State Governments were present. NIC and
States of Orissa, Tamil Nadu and West Bengal made presentation on their e-tendering systems
during the workshop. Hands on training on GePNIC Software were also a part of the workshop.
29
As an outcome of the workshop, training on GePNIC software is being imparted in the States
covered under first phase of implementation of e-Procurement.
18.3
PIARC (World Road Association) Seminar:
Keeping in view importance of maintenance, PIARC International Seminar on Sustainable
Maintenance of Rural Roads was held during 21-23rd January, 2010 at Hyderabad. The objective
of the seminar was to provide a common platform for practitioners to share experiences and
deliberate the issues and challenges associated with the planning, provision and maintenance of
rural roads in a sustainable way. Innovations with respect to involving local communities
throughout the process also formed a part of the overall objective of the Seminar. The Seminar
was focused on the Indian experience of dedicated National Programme on Rural Accessibility
PMGSY, Sustainable Accessibility and Planning the Development of Rural Road Network,
Implementing Sustainable Maintenance, Community Participation and the way forward
Exposition on Prime Minister's Rural Roads Programme (PMGSY)
Alongside the Seminar, a small photo exposition was organized showing the details of PMGS'Y,
India's national programme of rural connectivity. Participants viewed and discussed the valued
information on PMGSY and practices for construction of low volume roads shown in this
exposition.
Inauguration of Seminar and Exposition
Shri Pradeep Jain, Hon'ble Union Minister of State for Rural Development and Shri B.
Satyanarayana, Hon'ble Minister of Panchayat Raj, Andhra Pradesh inaugurated the Seminar and
Exposition on 21st January, 2010. The occasion was graced by the presence of many other
dignitaries.
Participation
The Seminar was attended by about 500 participants from India and 20 international participants
including delegates from Bolivia, Burkina Faso, France, Finland, Italy, Mexico, Nepal, Norway,
Sri Lanka, Switzerland, Thailand and USA.
Themes and Presentations during the Seminar
The Seminar covered the four themes related to maintenance of rural roads and experts of
eminence from various International and national organizations made presentations on the topics
and technical sessions were attended by stakeholders from organizations over the globe. Details
are as follows:
Theme I:
Theme II:
Theme III:
Theme IV:
PMGSY in India
Sustainable Accessibility and Planning the Development of Rural Road Network.
Implementing Sustainable Maintenance
Community Participation
30
18.4
International Seminar on Rural Roads
Seminar on Sustainable Maintenance of Rural Roads : Second International Seminar on
Sustainable Maintenance of Rural Roads was organized at Santa Cruz, Bolivia during 10th -12th
March, 2011 followed by the seventh and the last meeting of TC- A4 Committee of PIARC for
cycle 2008-2011 on the 13th March, 2011. The seminar was organized by Bolivian Highways
Administration called ABC supported by PIARC. The International seminar was seen as an
opportunity to understand the scenario of development of rural infrastructure in Latin American
countries. Since the socio-economic parameters and geo-climatic conditions of Bolivia have
considerable similarities to those in India, it was felt that the exposure to Bolivia and projection of
achievements in PMGSY implementation of India would be helpful. A delegation of 4 members
was deputed to attend the Seminar. The delegation was headed by Shri. Prabha Kant Katare,
former Director, NRRDA. The other members of the delegation are:
•
•
•
Shri. K.C. Dhimole, CEO, Arunachal Pradesh Rural Roads Development Agency,
Arunachal Pradesh
Dr. I.K. Pateriya, Joint Director (Technical), NRRDA
Shri. S.R. Mehar, Under Secretary, MoRD
Socio climatic conditions of Bolivia are quite similar to those in India. About 70% of the
population of Bolivia lives in 3 cities and rest of the population lives in rural areas and this was the
difference when compared to India. The scenario of road development in Bolivia is relatively
weaker compared to India in general. It was a matter of great satisfaction that implementation of
PMGSY in India was presented before almost all the Latin American countries and it was taken
as one of the most successful programme in the world on providing rural accessibility.
International Seminar on “Performance Based Road Maintenance Contracting” at
Orlando, Florida, USA.
The International Road Federation had invited officers of National Rural Development Agency
as extended invitation for participation in the latest addition of his Projective Seminar series five
day programme of presentation with two days field exposure and discussion about performance
based road maintenance contracting and preservation held from 30th October to 8th November,
2011. In Orlando, Florida, USA upon international experts representing his field of maintenance
contract management, finance of sustainable policies development have presented best practices
and case studies in maintenance contracting and preservation. Participants had been engaged in
working groups with experts who are actively involved in Maintenance Contracting and Asset
Management to discuss application of best practices under different country conditions on
following agenda:









Lessons and Principles of Output and Performance Based Road Maintenance Contracting.
Trends in Private Participation in Roads.
Financing Road Maintenance Programmes.
Model Contract Documents.
Output and Performance Based Contracting.
Maintenance Management issues and Requirements.
Best Practices & Sustainability in Maintenance.
Outsourcing Maintenance in Developing Countries.
Innovative Financing & Risk Issues (PPP).
Environmental Benefits of Road Maintenance.
31
A delegation of 7 members was deputed to attend the Seminar. The delegation was headed by
Shri Rohit Kumar, Director (RC), MoRD. The other members of the delegation are:
(i) Shri N.C. Solanki, Director (Projects-I), NRRDA
(ii) Shri K.K. Srivastava, Chief Engineer, PWD, Uttarakhand.
(iii)Shri M.M. Sun, Chief Engineer, PWD, Meghalaya
(iv) Smt. Anjana Devi, Technical Advisor, Govt. of Jharkhand.
(v) Shri Anurag Asthana, Senior Engineer, UPRRDA, Uttar Pradesh
(vi) Shri S.S. Bhatia, Assistant Director (Projects-I), NRRDA
Orlando, Florida (USA) is a city in the Central region of United States of Florida. According
to 2010 census, the city having area of 101 square mile with land area of 93.5 sq mile and having
water 7.5 square mile and had a population of 238,300 making Orlando the 79th largest city in the
United States.
Summary and Key Issues to Success









18.5
Asset Maintenance a crucial aspect.
Asset Maintenance Contract types: Corridor, Geographic, Facilities, Bridge.
Incorporating existing resources into contracts.
Selection of Contractor on Price and Technical proposal.
Determination of ultimate customers i.e. Department or Traveling Public or anyone dealt
with.
Long term success requires, building a constructive relationship with the Asset
Maintenance Contractor including Employee Development.
Coordination of scope with industry.
Use of clear & comprehensive defined Standard & Scope of Services against well
established performance measures to maximize programme success and consistency.
Use of established procedures and policies scope for dynamic changes.
Interactive session for faster preparation/formulation of proposals to obtain
clearance of PMGSY projects under Forest (conservation) Act:-
More and more habitations in remote areas are being taken up now for road connectivity under
PMGSY. In order to provide road connectivity to habitations in remote areas, it is sometimes
required to construct/upgrade roads or portion thereof through forest areas which necessitates
clearance under the Forest (conservation) Act, 1980 and its subsequent amendments.
It takes much time at the State level to process and prepare the required documents for sending to
the regional office of the Ministry of Environment and Forest in order to obtain the clearance
under Forest (conservation) Act. Process simplification for faster preparation/formulation of
proposal is required for timely implementation of PMGSY projects.
For identification of the problems and working out suggestions for process simplification, a
meeting was held with the officers of the MoEF, MoRD and the State Govt. of Himachal Pradesh
and Uttrakhand on 27.02.09 in NRRDA. It was decided in the meeting to organise interactive
sessions with the officials of State Rural Road Development Agency (SRRDA)/ Programme
Implementation Units (PIUs), implementing the programme (PMGSY) in the State and the forest
department of the State Governments. The first inter-active session was held at Shimla on
29.05.09.
32
19.
Maintenance of Rural Roads
PMGSY is a huge Central investment in the State sector as part of a poverty reduction
strategy. This investment, in essentially the ‘last mile’ connectivity, is likely to be useful only if
the main rural road network, particularly the rural Core Network is maintained in good condition.
In the context of a farm-to-market connectivity, proper maintenance is essential if risks of long
term investments, on-farm as well as off-farm, are to be taken by the rural entrepreneur.
Accordingly, the institutional measures to ensure systematic maintenance and providing adequate
funding for maintenance of the rural core network, particularly the Through Routes, will be key to
the continuance of the PMGSY programme in the State. To this end, State Governments need to
take steps to build up capacity in the District Panchayats and endeavour to devolve the funds and
functionaries onto these Panchayats in order to enable them to manage maintenance contracts for
rural roads.
All PMGSY roads (including associated Main Rural Links / Through Routes of PMGSY
link routes) will be covered by 5-year maintenance contracts, to be entered into along with the
construction contract, with the same contractor, in accordance with the Standard Bidding
Document. Maintenance funds to service the contract will be budgeted by the State Government
and placed at the disposal of the SRRDA in a separate Maintenance Account.
Since rural Through Routes / Main Rural Links carry comparatively larger traffic and
keeping them in good condition is particularly important, Through Routes (whether upgraded
under PMGSY or subjected to maintenance contract as an associated Through Route of a PMGSY
link route) on expiry of 5-year post-construction maintenance shall be placed under Zonal
maintenance contracts consisting of 5-year maintenance including renewal. The State Government
will make the necessary budget provision and place the funds to service the zonal maintenance
contracts at the disposal of the SRRDA in the Maintenance Account.
Maintenance funds- Commitment, Release, Expenditure for all years State-wise as per
Annexure –XI.
20.
Research and Development
At present following is the normal procedure followed in funding the R&D projects by Ministry of
Rural Development under PMGSY.
1. The product proposed to be used and the technology shall get accreditation from Indian
Roads Congress (IRC).
2. After getting the accreditation, the material supplier shall contact one or more state
SRRDAs and convince them about the efficacy of the product and its application in their
state.
3. The material supplier should engage a technical consultant and involve the state Engineers,
where the pilot project is proposed, in preparing a DPR supported by data through
appropriate investigations.
4. While preparing the DPR, the cost of the proposed road with new technology and
conventional technology are to be worked out and compared to prove the economic
viability and cost effectiveness.
33
5. While submitting the proposal through SRRDA, the Product manufactures/ Agents should
give undertaking to the following effect:
a. The product required for the pilot project road shall be given as a free sample,
while the cost involved in the construction of other components will be given by
Ministry of Rural Development.
b. The material suppliers shall engage any competent technical agency to help the
field engineers and the contractor’s engineers in the construction of road with their
product and build capacity through formal and on-spot training.
c. The company should agree to carryout post construction performance monitoring
for a minimum period of 18 months, in association with the Technical Advisor.
Indian Roads Congress has accredited more than 48 materials/ technologies for use on Pilot Basis
for a period of 2 years. A list of these Materials/ Technologies is available on their website:
www.irc.org.in
The following R&D initiatives have so far been taken in association with the concerned agencies:(i) Use of Jute Geo Textiles in Rural Roads: – Cost of road construction being higher in
poor soil, R&D findings on the benefits of using Jute to improve soil strength is being further
investigated. In order to prove the efficacy of the use of Jute Geo Textiles in Rural Road
Construction at field level, a Pilot Project has been initiated and the Jute Manufactures
Development Council (JMDC), an Agency of Ministry of Textiles was identified as the nodal
agency for the Pilot Project which in turn has retained Central Road Research Institute (CRRI),
New Delhi as Technical Consultant. An MOU was signed between NRRDA and JMDC. 10
Road works for the Pilot Project were selected in the States of Assam, Chhattisgarh, Madhya
Pradesh, Orissa and West Bengal, taking two roads in each state.
The Detailed Project Reports for the selected road works, prepared by JMDC under
the guidance of CRRI, were cleared by Empowered Committee. The SRRDAs tendered,
awarded and executed the works following the provisions of SBD with necessary special
conditions.
Nine road works have been completed and performance evaluation of these roads is
being carried out by CRRI. One road work could not be started due to local unfavorable
conditions and has been dropped from the pilot project. Performance report is yet to be
received from CRRI.
Details of these road works executed are available at Sl No. 1 to 30 in Annexure XII(B).
(ii) Rural Roads Pavement Performance Study: – Rural Roads Pavement Performance
Study was initiated on the recommendations of the Workshop conducted for PTAs/ STAs,
in order to enable the evaluation of the following:
(i).
(ii).
(iii).
Efficacy of the current design procedures for sustainability.
Trends in the growth pattern of the traffic plying on the roads under different socioeconomic environments.
The progression of deterioration of the pavements over a period of time under
different field conditions.
34
15 institutions for carrying out Rural Roads Pavement Performance Study were identified
and MoU were signed.
Final Report has been received from most of the Institutes. IIT, Chennai has been
nominated to carry out analysis and modeling at local and global level with the data of all
institutes.
(iii) Technology Demonstration Projects:States are encouraged to submit Technology Demonstration Projects along with regular
proposals. Projects received from States are scrutinized and submitted to Empowered
Committee for recommendation and approval from Ministry of Rural Development.
 States were requested vide letter No. P-17012/2/2004-Tech. to adopt soil stabilization
techniques where CBR is below 3 and STAs will ensure that appropriate soil
stabilization techniques have been proposed.
 A workshop on Use of Jute Geo Textiles was organized in 2009 and it was decided
with the consent of the States that proposals of minimum length as detailed below, will
be prepared using JGT Technology, by the States while bringing the next batch of
proposals to NRRDA / MoRD for clearance. The States have informed that they will
bring these proposals in the next batch.
Arunachal Pradesh
Chattisgarh
Madhya Pradesh
West Bengal
Assam
Bihar
Sikkim
About 30 km
About 50 km
About 50 km
About 100 km
About 100-150 km
About 50 km
------
PM Package
ADB Project
ADB Projects to be considered
by Empowered Committee on
19.06.09
Bharat Nirman
ADB III
Bharat Nirman
For Slope Protection Works
 A Pilot Project using Cold Mix Technology for 500 km in the State of Assam was
sanctioned in 2010. The State has informed that it has already completed 500 km road
length using Cold Mix Technology.
 Letters have been circulated to all the States to take up Pilot Projects using any of the
materials/ technologies accredited by IRC in their annual proposals.
 Technology Demonstration Projects for 24 road works using Cement Concrete (Cell
filled and interlocking concrete block), Gravel, Lime Stabilized, Slag Stabilized, Coir
and RBI-811 were considered under PMGSY in the State of Karnataka.
 Letters have been circulated to the States of Andhra Pradesh, Assam, Chhattisgarh,
Jharkhand, Karnataka, Madhya Pradesh, Orissa and Tamil Nadu to take up Rural Road
Projects with Coir Geo Textiles covering a length of about 50 Km in each State either
under New Connectivity or Upgradation.
 Letters have been circulated to all the States to take up Rural Road Projects, for about
100 Km on pilot basis, using Cold Mix Technology in the construction of surface layer
of Rural Roads under PMGSY, if so allowed in the State.
List of road works taken up under R & D is placed at Annexure – XII(A).
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A Workshop was organized on 18th February, 2012 at Central Road Research Institute,
New Delhi on Non Conventional Materials/ Technologies in order to create awareness among the
field engineers, to bridge the gap between laboratory and the field construction techniques and to
demonstrate the use of locally available materials, new materials and waste materials.
The Workshop was attended by representatives of more than 20 States.
21.
Consideration of Proposals of Members of Parliament
Following are the main provisions in the PMGSY Guidelines for consultation with
Members of Parliament: (i)
The Core Network and District Rural Roads Plan is finalized by District Panchayat after
giving full consideration to suggestions of MPs
(Para 4.6).
(ii)
The Comprehensive New Connectivity Priority List (CNCPL) and Comprehensive
Upgradation Priority List (CUPL) will be prepared after consultation with MPs and taking
their suggestions.
(Para 6.4).
(iii) Lok Sabha Members will be consulted in respect of their constituencies and Rajya Sabha
Members 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.
(Para 6.10).
(iv) In preparing Annual proposals for road works, the proposals of MPs will be given full
consideration as follows.

The Block or District CNCPL / CUPL should be sent to each MP with the request that their
proposals on the selection of works out of the CNCPL / CUPL should be sent to the
District Panchayat. It is suggested that at least 15 clear days may be given for the purpose.
(Para 6.9 (i)).

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 / CUPL list. District / Block-wise allocation may be indicated
to enable choice with the requisite geographical spread. It is expected that such proposals
of Members of Parliament which adhere to the order of Priority would be invariably
accepted subject to considerations of equitable allocation of funds.
(Para 6.9 (ii)).

The proposals received from the Members of Parliament by the stipulated date should be
given 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 noninclusion. It would be preferable if the communication is issued from the Nodal
Department at a senior level.
(Para 6.9 (iii)).
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22.
Initiatives under PMGSY
The Rural Road Programme has taken many new initiatives and established several new standards
in its endeavour to construct roads of the highest possible quality. The new initiatives taken as part
of the PMGSY programme include the following.
22.1
Development of Rural Roads in 82 Selected Tribal and Backward Districts under IAP
For inclusive growth a number of initiatives have been taken.
Special Dispensation accorded to 82 Selected Tribal and Backward Districts under IAP by
Ministry of Rural development:
(i)
All habitations in 82 Selected Tribal and Backward Districts under IAP, whether in
Schedule V areas or not, with a population of 250 persons and above (in 2001 Census) will
be eligible for coverage under PMGSY.
(ii)
In 82 IAP districts, cost of bridges up to 75 meters under PMGSY will be borne by
Government of India as against 50 meters for other areas.
(iii)
In case of 82 IAP districts, the minimum tender package amount has been reduced to Rs.
50 lakh to attract more response to bids.
Special Dispensation accorded to 82 Selected Tribal and Backward Districts under IAP by
Ministry of Environment and Forest:
General approval under Section 2 of Forest (Conservation) Act 1980 for diversion of forest land
up to 5 ha for creation of critical public infrastructure projects in 60 IAP districts has been given
and orders have been issued, which covers rural roads.
Workshop on “Appropriate Development Strategies for effective implementation of the
schemes of Rural Development in 60 IAP Districts”
A Workshop on “Appropriate Development Strategies for effective implementation of the
schemes of Rural Development in 60 IAP Districts” was also held by the Ministry of Rural
Development and the Planning Commission on 13th September, 2011 in which Principal
Secretaries / Secretaries dealing with Rural Development Programmes of all the nine IAP States
and District Collectors / CEO Zila Panchayats/PD DRDAs of all the 60 IAP Districts were invited
in addition to the Secretaries of various Ministries / Departments of Government of India and
Experts from various fields.
Recommendations of the Workshop on PMGSY
The workshop on “Appropriate Development Strategies for effective implementation of the
schemes of Rural Development in 60 IAP Districts” held on 13.9.2011, after detailed
deliberations, made the following recommendations vis-à-vis 60 IAP districts:
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(i)
Construction of critical Cement-Concrete (CC) Roads in highly affected blocks in 60 IAP
districts may be permitted
(ii)
Manual tendering may be allowed in some highly-affected blocks of such districts for a
limited period of one year.
(iii) Clustering of PMGSY roads for creating greater synergy may be considered in such
districts.
(iv) Assessment criteria of bid capacity of contractors may be relaxed in such districts so that
smaller contractors can also participate in PMGSY works.
(v)
The time period of execution of road works in these districts may be enhanced from the
existing 18 months to 24 months.
(vi) National Rural Roads Development Agency (NRRDA) may examine use of modern
ground improvement techniques and use of pre-fabricated bridges to expedite construction
in such districts.
22.2
Formulation of District Rural Roads Plan
For the first time systematic District Rural Roads Plans have been prepared listing out the
complete network of all roads in the district i.e., Village Roads, Major District Roads, State Roads
and National Highways.
22.3
Implementation of concept of Core Network
The concept of Core Network has been operationalised for the first time in order to focus
on the set of roads which are considered essential to provide connectivity to all habitations of the
desired size. The Core Network is the basic instrumentality for prioritisation of construction and
allocation of funds for maintenance. The order of priority and the Comprehensive New
Connectivity Priority List (CNCPL) / Comprehensive Upgradation Priority List (CNCPL) are the
twin basis for taking up Annual proposals.
22.4
Consultation with public representatives
The PMGSY has an inbuilt mechanism for consultation with public representatives from
Panchayat to Parliament at various points of the programme. Consultation with Members of
Parliament is held at both the Core Network finalisation and Annual Proposals stages. In addition,
at the stage of preparing DPRs, the DPIU conducts a transect walk along the road alignment,
involving the local panchayat.
22.5
Rural Roads Manuals
The original Manual, called Manual on Route Location, Design, Construction and
Maintenance of Rural Roads was brought out by the Indian Roads Congress as a publication in
1979 (IRC: SP:20-1979).
38
Following the launch of the PMGSY, the Ministry of Rural Development constituted 3
Committees in January 2001 to go into various aspects of rural road construction and the manuals
on these different aspects brought out by the committees were combined into a separate ‘Rural
Roads Manual’ and published as an IRC publication (IRC:SP 20-2002) in supersession of earlier
manual.
Subsequently, IRC has prepared and published the following codes, which will help in
design of low volume rural roads.
IRC:SP:62-2004 (Guidelines for the design and construction of cement concrete
pavements for rural roads), IRC:SP:63-2004 (Guidelines for the use of Interlocking concrete block
pavement), IRC:SP:68-2005 (Guidelines for
construction of roller compacted concrete
pavements), IRC:SP: 72-2007 (Guidelines for the design of flexible pavements for low volume
rural roads), and IRC:SP:77-2008 (Manual for design, construction and maintenance of Gravel
roads).
Revision of the Chapters on CD Works is being taken up for achieving cost effectiveness
and is at approval stage by IRC council.
22.6
Review of Geometric design parameters.
An Expert Committee to review the Standards, Specifications and Design of rural Roads
for achieving economy in the cost of construction under Pradhan Mantri Gram Sadak Yojana
(PMGSY) was constituted. Subsequently the committee held consultative meetings with the State
Representatives. Based on the deliberations, recommendations on road Geometrics in hill states as
well as plain and rolling terrains have been finalized and communicated to all the states concerned.
The recommendations made help to reduce the cost of construction and also facilitate Rural Road
construction in the areas of land constraints.
22.7
Use of new technology and materials
The focus given to Rural Roads through the PMGSY is now enabling the channelization of
R&D efforts to this sector. Use of cement concrete, modified bitumen, jute Geotextile, fly ash as
well as soil stabilisation techniques and other new methodologies, including waste plastic are all
being pursued.
22.8
Outsourcing of technical inputs
In order to manage the programme at the national level and yet ensure that adequate
technical inputs are locally available for planning and execution of rural roads programme, an
elaborate structure consisting of Principal Technical Agencies (national level technical
institutions) as well as State Technical Agencies (regional level technical institutions) has been
successfully brought into the framework of the programme planning and execution through a
Government – academia partnership.
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23.
National Rural Roads Development Agency
The National Rural Roads Development Agency (NRRDA) has been set up as a society
under the Societies Registration Act on 14th January, 2002 to provide technical support to the
programme. The NRRDA provides support on the following:1. To provide inputs to Ministry of Rural Development for framing appropriate Action
Plan for effective and optimum result oriented implementation of PMGSY keeping in
view the broad policies/guidelines and the budgetary resources made available by the
Ministry of Rural Development.
2. Scrutiny of the proposals received from States and Union Territories for consideration
by the Ministry of Rural Development.
3. To deal with matters relating to State Rural Roads Development Agencies (SRRDAs),
monitor their progress in respect of the road-works with particular reference to time
frame for completion, Technical Specifications, Project Appraisal and Quality Control
methods, expenditure incurred by the State / Union Territories, planning for and
plantation of other suitable trees on both sides of the rural roads. To hold meetings of
the Performance Review Committee/ Regional Review Committee for periodic review
of progress of PMGSY and send periodic reports to the Ministry on the progress of
implementation of road works by the States or Union Territories.
4.
To interact with State Governments, other Ministries/ Departments, national and
international Bodies (ADB, WB, PIARC etc.) with a view to take concerted action for
effective and meaningful implementation of PMGSY in a convergent manner.
5. To seek sufficient budgetary support for PMGSY from Ministry.
6. To undertake study, research activities, Pilot Projects, etc. and evaluate different
technologies in respect of Rural Roads, and advise on appropriate design and
specifications of rural roads including bridges and culverts, measures to improve the
Quality and Cost-norms of the Rural Roads.
7. To appoint reputed Technical Institutions as Principal Technical Agencies and State
Technical Agencies to perform the tasks to be entrusted to them and Independent
Monitors from among serving or retired Engineers, Academicians, Administrators and
other Agencies, with experience in Rural Roads and to review their performance.
8. To oversee and inspect through Independent Monitors, the execution of the road-works
cleared by the Ministry and being implemented by States or Union Territories through
their Executing Agencies.
9. To arrange suitable Training Programmes for functionaries involved in the
implementation of the Rural Roads Programme; organise or sponsor to Workshops and
Seminars in respect of Rural Roads and publish books, literature, print, audio-visual,
publicity material in respect of the PMGSY.
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10. To provide guidance to States in the matter relating to accounts and financial
management of PMGSY, to monitor and follow up for compilation and audit of
Accounts by the SRRDAs and review their Action Taken Reports on Audit
observations.
11. Timely re-payment of principal amount of loan and payment of Interest to NABARD.
12. To maintain and upgrade OMMAS through an engaged agency (C-DAC) and monitor
the progress made by SRRDAs in respect of updation of OMMAS including On-line
generation of Accounts and submission of proposals for release of funds to Ministry of
Rural Development.
General Body
As per Clause 11 of Rules and Regulations – Bye Laws of NRRDA the number of
Members of the General Body shall not exceed 21. The Members of the Agency shall be
nominated by the President. The General Body shall meet normally once in 6 months but at least
once every year, on such date, time and place as may be determined by the President.
Executive Committee
As per Clause 18 of Rules and Regulations – Bye Laws of NRRDA there shall bean
Executive Committee of the Agency and shall comprising the Director General- Ex-officio
Chairman, 5 Members to be appointed by the President, of which one shall be Finance Member
and the remaining 4 shall be from among the Principal Technical Agencies.
The Executive Committee shall meet as often as is necessary but at least once in two months.
The details of meetings of General Body and Executive Committee held in 2011-12 and
2012-13 are enclosed at Annexure XIII..
24.
Impact Assessment
24.1
Impact Assessment of PMGSY was conducted during January – February 2004 in 9 States.
24.2
M/s. Lea Associates South Asia Pvt. Ltd. was engaged (on 29th June, 2005) as a National
Consultant to conduct a poverty-impact survey of Pradhan Mantri Gram Sadak Yojana on
the rural population and also to study the satisfaction level of road-users. The study covers
ten States, namely, Assam, Bihar, Himachal Pradesh, Karnataka, Mizoram, Madhya
Pradesh, Orissa, Rajasthan, Uttar Pradesh and West Bengal.
24.3
Nationwide impact assessment study of PMGSY was organized with the help of
independent research agencies with CMI Social Research Centre, New Delhi as Nodal
Agency. Report was submitted in March 2011. The study has covered 17 States, 50
districts and 748 habitations and 18655 households interviewed. The major findings of
study include:


Impact on Agriculture:Easier access to markets and improved flow of
information attributed to improvements in agricultural production and incomes of
the farmers
Impact on employment generation:- 35% households reported increase in no of
days of employment in principal occupation.
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


25.
Impact on income and poverty alleviation: - 63% households reported an
increase in the average annual income in their principal occupation and 65%
reported increase in average annual in all occupations.
Impact on health aspects:- In 87% habitations their has been a reduction in travel
time to reach nearest health facility.
Impact on education:- Provision of all whether road facilitated creation of
infrastructure, institutions, increase in manpower and other improvements in
educational aspects.
Finance and Accounts of Project
The State level autonomous agency designated as State Rural Development Agency
(SRRDA) for each State receives Funds for the PMGSY Works from MoRD/NRRDA.
Funds receive for construction of New Roads, up gradation of Existing Roads, sign board
and such other activities that MoRD specify are kept by SRRDA in Programme Fund
Account. Funds received for various Administrative Expense for the items specified in the
charts of Accounts of PMGSY Administrative Expense Fund are kept in Administrative
Expense Account. In the state of Bihar besides SRRDA, nominated executing agencies
namely NBCC, NHPC, NPCC, IRCON and CPWD have also been entrusted the
construction of PMGSY Roads in selected districts are related directly to them.
The SRRDA’s and NEA’s are responsible for rendering their accounts audited from a
Chartered Accountant selected from a panel approved by the C&AG of India, within six
months from closure of the Financial Year. This account is supported by a statement of
Bank Reconciliation, utilization certificate. Banker certificate indicating the balance
amount on date of issue of the certificate and interest credited is submitted to sate Nodal
Department and the MoRD. NRRDA also provide the Training on OMMAS (R&P)
Module and Accounts.
25.1. Status of Audited Accounts
Audited Financial Statement furnished by SRRDA/ NEA are reviewed by NRRDA
shortcomings, if any, communicated to the concerned SRRDA/NEA under intimation to
MoRD. However, CPWD executing PMGSY work in the State of Bihar sends the income
and expenditure account directly to MoRD.
There are 28 SRRDAs and 5 NEAs.
The State of Himachal Pradesh, Madhya Pradesh (Programme Fund only), Odisha,
Rajasthan (Programme Fund only) and Uttar Pradesh have prepared the Balance Sheet for
the Year 2011-12 based on OMMAS.
The status of submission of Balance Sheet to MoRD/NRRDA is given in Annexure -XIV.
25.2.
OMMAS
The Online Management, Monitoring and Accounting system (OMMAS) has been
designed as an Online web based system with centralized database. The OMMAS consist
of 9 Modules namely Master Data, Rural Road Plan, Proposal, Tendering, Execution,
Quality monitoring, Accounting & Fund Flow, Maintenance and Security &
Administration. Detailed procedure for making data Entry in the respective Modules is
given in OMMAS User manual version 2.0. One of the parameter (Para 19.3(e) of PMGSY
42
Programme Guidelines) for release of second installment of Programme Fund in a year to
SRRDA is that the output of the relevant Modules of OMMAS has been certified by the
concerned SRRDA as correct. Further, as Para 12.1(ix) of PMGSY Programme Guidelines,
the release of Administrative Expense Fund is dependent on continuous updation of
OMMAS Module. The status of data entry in the Receipt & Payment module is given in
the Annexure-XV.
26.
Formulation Pradhan Mantri Gram Sadak Yojana –II (PMGSY-II) Scheme
At the start of 12th Five Year Plan, many States have substantially completed New
connectivity and Upgradation under PMGSY and many other States are likely to be in the same
position within a year or two.
2. Keeping in view the asset value of the road network, it is increasingly essential to ensure
that assets already created are maintained and yield services as originally envisaged before going
on undertaking commitments for creating more assets. Hence, a programme, called PMGSY-II, is
being conceived on sharing basis to consolidate existing rural road network by upgradation,
renewal and maintenance of the vast network already created. In order to formulate the draft
policy for the PMGSY-II, discussions were also held with experts in Rural Roads sector on 24th
April, 2012. Also the discussions were held with some of the States.
3. Based on above discussions, a draft “Concept Paper” has been prepared to obtain the
comments and suggestions of all the States and UTs.
4. Need for Consolidation of Rural Road Assets- Justification of the Scheme:
It is proposed that PMGSY-II consolidates the existing rural road network. It would cover
Upgradation of existing selected rural roads based on a criterion to make the road-network vibrant.
The selection of routes would be with the objective of identification of rural growth centres and
other critical rural hubs, rural places of importance (connectivity to other growth poles, market,
rural hub, tourist places etc.). Development of Rural Hubs & growth centres are crucial to the
overall strategy of facilitating poverty reduction through creating rural infrastructures. Growth
centres/rural hubs provide markets, banking and other service facilities enabling and enhancing
self employment and livelihood facilities. They also help ensure raw materials and labour inputs
for off-farm activities. They will also help bring the benefits of economic growth to the rural
hinterland, including white goods, automobiles etc. PMGSY-II, by recognising growth
centres/rural hubs and facilitating their connectivity to the hinterland will catalyse livelihood based
programmes, including the Nation Rural Livelihoods Mission (NRLM) launched in the 12th FYP.
*********
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