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Pradhan Mantri Gram Sadak Yojana

S No. Name Page No.

1. Guidelines 1-5

2. Rural Roads Construction 6-19

3. List of States, Nodal Departments, Executing Agency,

Autonomous Body, State Quality Coordinators and

IT Nodal Officers 20-25

C O N T E N T S


1

Principles and Objectives

• The Pradhan Mantri Gram SadakYojana is a special centralintervention as part of a povertyreduction strategy. Though ruralroads is a State subject, the CentralGovernment is providing financialassistance as a CentrallySponsored Programme.

• The primary objective of theProgramme is to provideconnectivity to unconnectedhabitations in rural areas by meansof all-weather roads. This is to bedone in a time frame thathabitations with a population of1000 and above shall be coveredin three years, and those with apopulation of 500-1000 shall becovered by the end of the TenthFive Year Plan period.

• In respect of the Hill States (theStates in the North East, Sikkim,Himachal Pradesh, Jammu &Kashmir and Uttaranchal), thedesert areas as identified in theDesert Development Programmeand the Tribal Areas (Schedule V),the objective is to connecthabitations with a population of250 and above.

• The programme can provide forthe upgradation of the existingroads to prescribed standards.However, it must be noted thatupgradation is not a keycomponent of the programme andcannot exceed 20 per cent of theallocation of the State. And, inupgradation works, priority shouldbe given to the work of conversionof fair-weather roads to all-weather roads.

• The programme envisages singleconnectivity. If a habitation isconnected to another habitationby an all-weather road, no furtherwork can be taken up under thePMGSY for that habitation.

Planning for Rural Roads

• In each district, the DistrictPanchayat / Zilla Panchayat hasapproved its District Rural RoadsPlan indicating the existing roadnetwork system and also the roadsproposed for connecting theunconnected habitations to theexisting road network, in aneconomical and efficient manner.

• Out of this Plan, the DistrictPanchayat has identified a CoreNetwork consisting of some of theexisting roads as well as all the

Guidelines


roads proposed for newconnectivity under theprogramme, in order to provide atleast single access to allconnected / eligible habitations.The Core Network is the basis forall planning in the rural roadssector.

• The District Rural Roads Plan andCore Network have been finalisedby the District Panchayat inconsultation with the IntermediatePanchayat / Panchayat Samiti andelected representatives.

Annual Proposals

• Each year the list of road works tobe taken up under the PMGSY isfinalised by the District Panchayat,in accordance with the fundsallocated to the district by the StateGovernment. The DistrictPanchayat shall finalise the listthrough a consultative processinvolving the lower-levelpanchayati institutions and electedrepresentatives. It must be ensuredthat the road works are part of theCore Network and that newconnectivity is given primacy asper the order of priority.

• In drawing up the list of roadworks, the District Panchayat

ensures that unconnectedhabitations get primacy byfollowing the order of priority:-

a) Providing new connectivity tounconnected habitations with apopulation of 1000 and more(500 and more for hill States, NEStates, Desert and Tribal areas)

b) Providing new connectivity tounconnected habitations with apopulation of 500-999 (250-499in the case of hill States, NEStates, Desert and Tribal areas)

c) Upgradation of through roads(i.e., roads leading to importantplaces with branching roadsleading to habitations)

d) Upgradation of link roads (i.e.,roads ending in a habitation)

• In plain areas, the population of allhabitations within 500 metresradius shall be counted for purposeof determining population size. Inhill areas the radius shall be 1.5 kmof path distance.

• Exceptions to the scheme outlinedabove can be made for roads thatlink the village Panchayatheadquarters, market centres oreducational, medical or otheressential services or notified touristdestinations.

• Under the PMGSY, the proposalsof the MPs are to be given full2


consideration. A list ofunconnected habitations (withpopulation) in each District,alongwith a list of roads identifiedto connect them as part of the CoreNetwork, should be sent to the MPsconcerned for suggestions. It isincumbent on the DistrictPanchayat to ensure that, whileframing the proposals, fullconsideration is given to theproposals given by the MPs withinthe framework of the Guidelines.

State Nodal Agencies

• Each State Government hasnominated a Nodal Department,which has overall responsibility forthe implementation of the PMGSYin the State. The State Governmenthas nominated a State level agencyto receive the funds from theMinistry of Rural Development.

• Each State Government has alsoidentified Executing Agencies forthe programme. The executingagencies have their ProgrammeImplementation Units (PIU) atDistrict level, each headed by anengineer of the rank of ExecutiveEngineer.

• Each State Government has set upa State-level Standing Committee(headed by the Chief Secretary) to

vet the Core Network and theannual project proposals to ensurethat they have been formulated inaccordance with the guidelines.The Committee is responsible forclose and effective monitoring ofthe programme, and oversees thetimely and proper execution ofroad works.(Details of these agencies invarious States is given at page 20)

Procedure for Clearance ofProposals

• After approval by the DistrictPanchayat, the proposals areforwarded through the District PIUto the State Level Agency. Theagency vets the proposals inaccordance with the guidelinesand places them before the State-Level Standing Committee.

• The State-level StandingCommittee scrutinises theproposals to see whether they haveadhered to the Guidelines andwhether the recommendations ofMPs have been taken into account.

• After clearance of the State-levelCommittee, the detailed projectreports are prepared for eachproposed road work, and the designand estimates are got scrutinised

3


by a State Technical Agency (STA)nominated by the Ministry of RuralDevelopment.

• The State-level agencyconsolidates the proposals fromeach PIU after verifying that theyhave been duly scrutinised by therespective STAs and forwards theState annual proposal to theNational Rural RoadsDevelopment Agency (NRRDA),the agency of the Ministry of RuralDevelopment for management ofthe PMGSY.

• The NRRDA examines theproposals from the State-levelagency to ensure that they are inline with the programme guidelinesand that they have been dulyverified by STAs. The proposalsfrom the State are considered byan Empowered Committee,chaired by Secretary, Ministry ofRural Development andrecommended to the Minister ofRural Development for clearance.The representatives of the StateGovernment are invited to attendthe meetings.

Tendering & Execution of Works

• After formal clearance by theMinister of Rural Development, the

District PIUs tender the clearedworks as per the Standard BiddingDocument of the StateGovernment approved by theNRRDA.

• Within 15 days of the issue of thework order or the laying of thefoundation stone, whichever isearlier, a board is to be put up atthe site of the project, with aPMGSY logo, with the details of theproject.

• The contracted work is to becompleted within 9 months fromissue of work order in plain areasand 18 months in case of Hill Statesand Northeast, etc.

Quality Assurance

• Every contractor has to maintain afield laboratory for testing as partof the contract. He is to follow theQuality Control Handbookprescribed by NRRDA for all testsand is to record the results in theQuality Control Registermaintained by him at the site. Atleast 50% of the tests are to bedone in the presence of the PIUengineers.

• Each State Government hasappointed a State QualityCoordinator generally of the rank4


of Superintending Engineer. Hedeputes independent qualitymonitors every month to check andreport on the quality of theexecution. All defects pointed outare required to be removedimmediately by the contractor.

• NRRDA deputes National QualityMonitors (NQM), who are retiredChief/Superintending Engineers.NQMs inspect road works in orderto guide PIUs to improve thetechnical quality of the works.

• In case a road is found to be ‘poor’or ‘average’ the work has to berectified or redone by thecontractor.

• In case a road is found to be ‘poor’or ‘average’ on completion, actionis initiated against the contractor /person at fault.

Maintenance

• All PMGSY roads are guaranteeddefect free by the Contractor for aperiod of 5 years and maintainedby him under a contract. Funds forthe maintenance contract areprovided from the State Budget.After the period of 5 years theroads are transferred to the DistrictPanchayat for further maintenance.

Convergence

• Road connectivity is not the goal.It is the means to ensure thatessential public services likehealth, education, employment,access to markets etc., areavailable to all citizens. StateGovernment agencies andPanchayati Raj Institutions willensure that all related programmesfocus on providing these servicesto habitations connected underPMGSY.

Complaints

All complaints may be made to theState Quality Coordinator or the Stateconcerned.Please visit the PMGSY websites at:-www.pmgsy.nic.in (Ministry of RuralDevelopment)www.pmgsy.org (National Rural RoadsDevelopment Agency)

*This pamphlet gives only some of the importantprovisions of the Yojana. The PMGSY Guidelinesissued by the Ministry of Rural Developmentmay be consulted for further information.

5


Stages in Construction of Rural Roads

Survey, Planning and Design

To construct a good road,adequate survey, proper planningand design are required. Thealignment of the road has to bedecided to ensure proper roadgeometrics, gradient and effectivedrainage. A rural road generallyconsists of basic formation(embankment or cut-formation)and pavement over which thetraffic moves. The top 30 cm layerof the formation is compactedmore rigorously and is called sub-grade. The pavement consists ofa number of layers; the type oflayer and their thickness isdetermined by the nature ofground, strength of soil and also

the traffic intensity. These layersare sub-base course (compactedgranular material like gravel andsand etc.), base - course(watered, rolled and compactedmetal and screening, generallycalled Water Bound Macadam orWBM) and surface course (thinbituminous layer). These layersare constructed to distributeloads and stresses caused bytraffic from the upper layers to awider area of the sub-basecourse and sub-grade. The roadssurface may be unsealed (gravelsurface) if the traffic and rainfall islow or sealed (bituminous surfaceetc.) if traffic and rainfall is high.

6


A proper design essentially consists of determining the right type and thicknessof these layers, in the most economic way for design life of 10 years, based onthe soil, terrain, climate and traffic conditions along the road.

7


Road Geometrics

Every Road in the Programmehas to conform to the prescribedGeometric Standards laid out inRural Roads Manual. The widthof the road is determined on thebasis of expected traffic. Curveson the road side should begentle enough to allow traffic tomove at prescribed speed limits,with adequate sight distance. Allthis requires careful surveys atplanning stage.

MS Road to Chaina Road,Length:1.62 Km. Cost: Rs.15.77 Lakhs,District Morena, Madhya Pradesh.


8


Baldian to Kayarkoti Road, Length: 4.28 Km., Cost- 28 Lakhs,District Shimla, Himachal Pradesh.

NH 5 to Kunarbasta Road Length:1.21 Km.Cost: Rs.23.45 Lakhs, District Khorda, Orissa.

9



Earthwork and Sub-grade

An embankment is generallyconstructed to raise road levelto avoid later damage to theroad by surface water andground water. Height ofEmbankment is decided on thebasis of the ground profile.Good soil for embankment islaid in layers and compactedusing Road Rollers. Fly ash

can also be used forembankment construction.The Sub-grade is the top 30 cmthickness of the earthwork whichis constructed by using betterselected soil and compactedwith higher effort. Complete andproper compaction is crucial tobuilding a long lasting road.

Compaction of the sub-grade soil of the road,Rampur Fakhruwal to Rampur Road, Length 2.47 Km., Cost Rs 40.55 Lakhs,Year 2001-02, District Jalandhar, Punjab.

10


Hill side cutting for construction of formation of the road,Danughat to Kolka Road, Length:2.5 Km., Cost-62.83 Lakhs. District Solan,Himachal Pradesh.

While creating an embankment,in addition to the road width,shoulders are also provided and

compacted to protect the roadand provide additional width toallow vehicles to pass eachother.

11


Construction of Granular Sub-baseand Base Layers

After the laying and compaction ofthe Embankment, a sub-baselayer of granular material (sand,gravel or stone, slag, concrete,etc. in crushed form) is laid andcompacted properly.Metalling of the Road by basecourse layers of Water BoundMacadam (WBM) is then carriedout systematically. WBM isconstructed by spreading andcompaction of coarse and fineaggregates. The coarseaggregate is generally metal(generally crushed rocks,possessing adequate strength,

hardness, toughness, durabilityand of the right shape) which isspread over the road surface andcompacted dry by repeatedpassing of a road roller. After thisdry rolling of metal, screeningmaterial (to fill the spaces betweenthe metal pieces) is added andagain the dry rolling is done. Aftersufficient compaction, water isadded and the wet rolling iscarried out with road roller toachieve the full compaction. Ifrequired, the binding material isalso added to avoid raveling of themetal. The strength of the layer tosustain the traffic load comes fromthe interlocking of the metalpieces achieved by thecompaction. A number of WBMlayers with progressively smallersized metal may be donedepending on the strength of thesub-grade soil and traffic intensity.Dry compaction of metal and

application of screening material:Narbari Road, Assam.


12


Preparation for construction ofgranular Sub-base: DabraJangipur Road to Gadi, Length4.00 Km. Cost 63.89 Lakhs.District Gwalior, Madhya Pradesh.

Wet rolling of Water BoundMacadam Road after screeningand binding material has beenspread: B.C.C. Road toSengalipallam, District Karur,Tamil Nadu.

Laying of metal with the help ofCamber Board: Length: 4.20 Km.

Cost 64.56 Lakhs. DistrictGwalior, Madhya Pradesh.

13


Wearing Course

After the WBM layers havebeen constructed, the surfaceand wearing course, whichforms the surface of the roadis constructed. For ruralroads, this layer is generally atwo coat Surface Dressing(SD) or Premix Carpet (PMC)with Seal Coat. In SurfaceDressing, hot Bitumen issprayed on the brushed WBM

Application of binder after first coat of Surface Dressing:Pimpri Road, Orissa.

Surface and small size metalaggregate (chips) are spread outevenly and rolled using roadroller. In PMC, the aggregateand Bitumen are hot mixed andlaid at a temperature of about1250 C and rolled using a roadroller.‘Cold Rolling’ may also be doneusing Bitumen emulsion whichcan be worked at atmospherictemperature.


14


Premix carpet after compaction:Alampadi to Ivanur Road, Length 5.20 Km., Cost: 53.36 Lakhs,District Cuddalore, Tamil Nadu.

Laying and compaction of 20 mm thick Pre Mix Carpet:Periyavadugapatti to Mangasolipalyam Road, Length 3 Km.,Cost: 33.54 Lakhs, District Karur, Tamil Nadu.

15


Surface Drainage, Side Drainageand Cross Drainage and Protection Works

Proper Cross Drainage is animportant feature of these roads.Integration of side drains withcross drains is to be ensured.The drainage along and acrossthe road has to be proper, sothat water does not erode theroad structure. Drainage has tobe planned as part of roaddesign.

Hill side protection work and side drain: Shenal to Saunel Road,Length: 4.28 Km., Cost- 125 Lakhs, District Shimla, Himachal Pradesh.

Drainage of the road surfaceitself is extremely important. Thisis achieved by providing a gentleslope of 3% ( depending uponthe surface) on either side of thecentral line of the road. Thisslope is called Camber, and ithas to be uniform along thelength of the road except atcurves, where the outer surfaceis raised (super elevation) tobalance the centrifugal forces onthe vehicle.


16


Hume pipe vented causeway.The super elevation is visible at the curves at bottom right and top left. Theside drain well integrated with the cross drain is also visible.: Bhimanagar toBavarchiwadi Road, Length: 1.23Km, Cost- 14.66 Lakhs, District Satara,Maharashtra.

Slab culvert: Avulamanda toPathanancharapuram Road

Length:3.5 Km. Cost:Rs.19.5 lakhs, District

Prakasham, AndhraPradesh.

17


Quality Control

Construction of Rural Roads underPradhan Mantri Gram Sadak Yojana

Contractor’s Field laboratory. Block:Jaura, District Morena, Madhya Pradesh.

Quality starts with proper surveyand design. Under PMGSY, thedesigns are scrutinized by StateTechnical Agencies (STAs) toensure scientific design cateringto local soil, terrain, climate andtraffic requirements in the mosteconomical manner.

Quality during construction beingequally important, a three tierquality control mechanism hasbeen devised – the first tierconsists of the contractor’s fieldlaboratory, where tests are to becarried out as per prescribedQuality Control Hand Book at

various stages of the work, undersupervision of the ProgrammeImplementation Unit (PIU). Thesecond and third levels consist ofrandom inspection by QualityMonitors employed by the StateNodal Agency and National RuralRoads Development Agencyrespectively.

The majority of the tests arecarried out to determine thecompaction of the various layers,and the nature, quality and size ofthe various granular and othermaterials used. Most equipmentlike Sieve Set, Moisture testingapparatus, Proctor compactiontesting apparatus, etc are inex-pensive and extremely easy touse.

Relentless testing and mercilessquality control is the only guaranteeof a well constructed road.

18


Field laboratory. District South 24 Pargana, West Bengal.

Field Testing of N. H. 203 toNoagadi Road Length:1.5Km. Cost: Rs.33.00 Lakhs,District Bhubneshwar,Orissa.

19

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