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WELCOMES YOU
 PMGSY GUIDELINES /
CONTRACT MANAGEMENT
 OPERATIONS MANUAL (OM)
INTRODUCTION
Need:- To provide a systematic, comprehensive
easily accessible set of Operational
instructions on the PMGSY programme.

Mandatory :- The OM fully covers the PMGSY

programme. It will be mandatory on the
part of state implementing agencies to
follow the OM in every aspect.
 Purpose of SOM

The provisions of Supplemental

Operations Manual (SOM) are in addition
to the provisions of the OM and are
applicable to the additional activities
envisaged under World Bank funded
projects.
 Contents of OM
 Planning
 Design
 Project Preparation
 Scrutiny of Detailed Project Reports
 Procurement
 Project Implementation and Contract Management
 Quality Management
 Monitoring
 Finance & Accounting System
 Maintenance
 Road Safety
 Implementation Responsibility
 PROGRAMME OBJECTIVES PMGSY
Government have launched the Pradhan Mantri Gram
Sadak Yojana on 25th December’2000 to provide all
weather access to unconnected habitations. The Pradhan
Mantri Gram Sadak Yojana (PMGSY) is a 100%
Centrally Sponsored Scheme. 50% of the Cess on High
Speed Diesel (HSD) is earmarked for this Programme.
The primary objective of the PMGSY is to provide
connectivity, by way of an all weather Road (with
necessary culverts and cross drainage structures, which is
operable throughout the year), to the eligible unconnected
Habitations with a population of 250 persons and above.
 Key Definitions
 All-Weather Roads :- An all-weather road is one
which is negotiable during all weathers, with some
permitted interruptions. 24 hours for VRs in hilly terrain.
The total period of interruption during the year should
not exceed 15 days for VRs.
 Village/Habitation :- The unit for this programme
is a habitation and not a revenue village or Panchayat. A
habitation is a cluster of dwellings, in an area, the
location which does not change over time. The
population of all habitations within a 1.5 km of path
distance in case of hills may be clubbed together for the
purpose of determining the population size. The cluster
approach would enable provision of connectivity to a
large number of habitations.
GUIDING PRINCIPLES OF PMGSY AND
DEFINITIONS

Through routes are the ones which collect traffic from several
link roads or a long chain of habitations and lead it to
Marketing centers either directly or through the higher category
roads.

Link Routes are the roads connecting a single habitation or a

group of habitations to Through Routes.
The PMGSY shall cover only the rural areas and rural
roads i.e. Roads that were formerly classified as ‘Other
District Roads’ & village roads.

The PMGSY envisages only single road connectivity

to be provided.. Provision of necessary CD works is
considered an essential element.
It will be the responsibility of the State Government / District
Panchayat to ensure that lands are available for taking up the
proposed road works. PMGSY does not provide funds for
Land Acquisition. The details of land made available should be
reflected in the local land records to avoid dispute.

As part of the PMGSY process, all States may include a simple,

non-formal “transect walk” to be organized by the Assistant
Engineer at the time of preparation of DPRs.
 The PIU will ensure the following in preparing the
Detailed project reports:

i) The Technical Specifications and geometric design

standards given in the Rural Roads Manual of the
IRC: SP20:2002 and where required, the Hill Roads
Manual IRC: SP: 48.
ii) Pavement design to be done as per IRC:SP:72:2007

iii) Where the road passes through a Habitation, the road

in the built-up area and for 50 meters on either side
may be appropriately designed preferably as Cement
Road or with Paved Stones.
iv) The Rural Roads constructed under PMGSY must have
proper embankment / drainage. Adequate number of Cross
Drainage (CD) works.

v) In the case of Hill States the estimates for new construction

works may be prepared in 2 stages wherever circumstances
so require. As Such:-

(a) The first stage will consist of formation cutting, slope

stabilization, protection works and drainage works. That ‘unsealed’
surfaces are adequate in certain conditions like low
traffic.


(b) If black topping at the second stage is intended, it may be

taken up after two rainy seasons have elapsed to ensure
adequate stabilization of the side slopes.
VI) A separate maintenance component funded by the
State Government out of its resources will also be
provided in the DPR as follows:-
a) In case of link routes (new construction) 5 Year
routine maintenance.
b) The maintenance component will be contracted
out along with the new construction / up-
gradation, to the same contractor.

In respect of Hill roads, if construction is in 2 stages, the initial

5-year maintenance contracting will be done at the time of
contracting the work for the 2nd stage.
 WORKS NOT COVERED BY PMGSY
The following works are not covered by PMGSY

 PMGSY envisages only single connectivity. If already

connected than no further work under PMGSY.

 PMGSY does not permit repairs to black topped or

cement concrete roads.

 No urban roads can be constructed under the PMGSY.

 PMGSY does not permit any road to be constructed or

upgraded that is not part of the core network.

 PMGSY does not fund ROB costs for railway crossing, nor
does it fund maintenance of manned/unmanned railway
crossings.
Pradhan Mantri Gram Sadak Yojana
 Objectives of PMGSY - II
 PMGSY – II envisages consolidation of the
existing Rural Road Network to improve its
overall efficiency as a provider of
transportation services for people, goods and
services.
 It aims to cover up gradation of existing
selected rural roads based on their economic
potential and their role in facilitating the
growth of rural market centres, growth
centres, and rural hubs.
 Key Definitions
 Growth Centre:- A ‘Growth Centre’ can be defined as
an area of relatively centralized population, providing
rural socio-economic services not lonely for the area
but in a ‘catchment’ area with a radius of several
kilometres. It would generally be a T-junction of a
rural road with a Through Route or a meeting point of
two rural roads.

 Rural Hub:- A ‘Rural Hub’ is large Growth Centre,

characterized by the fact that it is connected to more
than one Through Route (e.g. a T-junction or a
crossing) thus giving it a higher potential.
 RRP-II
 Project Implementation :- 30 March 2011
 Expected Closing :- 30 Nov. 2015
 Estimated Disbursement in US $ millions
FY 10-11 11-12 12-13 13-14 14-15 15-16
Annual 150 200 300 400 300 150
Cumulative 150 350 650 1050 1350 1500

 Project Financing
a) Component A : Program support to PMGSY
Total :- 1440 US $ Millions
H.P. :- 215 US $ Millions
b) Component B: Institutional Strengthening
Total :- 60 US $ Millions
(R&D, PAC, PMC, Equipments, Training)
 Institutional Strengthening
B-1 R&D 11.9
B-2 Independent Verification 06.7
B-3 PMC 22.6
B-4 Equipment 07.8
B-5 Training 11.0
------------------------------------------------------------
Total 60.0
 PMC
 To provide the field based day to day capacity support to
ensure necessary systems & skills are in place to comply
PMGSY procedures.
 To report six monthly on key issues related to program
implementation.
 RRP-II Guidelines
 OMMS used for results monitoring
 Quality monitored through 3 tier Quality Control System
 PMC to day to day capacity support 6 monthly report
 PAC to review random 10% contract every year.
 WB may stop funding if review reports not adequate
 For preparation DPR
 For contract award in 75 days
 For quality constructions
 For funds utilisation
 For proper maintenance
 DLIs
Indicator Amount Base Target Source
10-11 11-12 12-13 13-14 14-15 15-16
DLI-1 50% 26300 27600 29400 33600 77% 37700 39500 GIS OMMAS
Habitation 60% 64% 68% 87% 91%
Connectivity
DLI-2 20%
1. Improved Only 80% Site check
Planning engineeri Work as by PAC/WB
ng Less per
ESMF & revised
Safety DPR
2. Improved Contract - - 70% CA 45 80% 90% OMMAS
Procurement award days from
time bid
more submission

3. Improved 3 Tier Work 95% NQM

Quality Quality 90% work reports
not fully rated rated
implemen satisfactor satisfacto
ting y by NQM ry by
NQM
 DLIs
Indicator Amount Base Target Source
10-11 11-12 12-13 13-14 14-15 15-16
4. Effective OMMAS
use OMMAS data
output
not
useable
DLI-3 30% Less 50% with 55% Reports
Maintenance roads PCI>2 with
with PCI>2
PCI>2
60% 75% Length of
roads roads roads will
routine routine also be
maintena maintena monitored
nce nce
contract contract
60%roads 70%
periodic roads
maintena periodic
nce maintena
contract nce
contract
 Planning for Rural Roads
 Proper planning is imperative to achieve the
objectives of the programme in a systematic and
cost effective manner.
 The DRRPs would constitute the basis for all
planning exercises under PMGSY-II.
 The Census 2011 will be used for purposes of
population data of the habitations in the DRRP
including the Growth Centres, to help determine
the candidate DRRP Roads for purposes of up-
gradation.
 Proposals
 In order to manage the rural road network for up
gradation and maintenance planning, all States will
(in-house or outsourced through a procedure
approved by NRRDA) carry out on a continuing basis
with a 2 year cycle, a Pavement Condition Survey of
the District Rural Road Networks (DRRP).
 Each PIU shall enter the PCI data in OMMAS database
which will enable generation of processed information,
including a list of roads and their PCI values.
 All up-gradation and maintenance prioritization will be
done from this list.
 Proposals
Under RRP-II the following categories of upgradation cum
consolidation proposals would be eligible
Category-A Eligible Through Routes/Link Routes under
PMGSY-I but not yet sanctioned.
Category-B Freshly identified Through Routes/Link Routes in
revised District Rural Roads Plan (DRRPs).
Category-C Roads constructed/upgraded under PMGSY-I,
experiencing comparatively higher volumes of traffic justifying
upgradation.
Roads already constructed under PMGSY-I will become
eligible for PMGSY-II on completion of design life and on the
basis of capacity requirement to accommodate traffic if it has
gone beyond the projected traffic.
Upgradation of selected rural roads include upgradation of
bridges on the identified roads.
 PMGSY Flow Chart
Scrutiny of DRRP Consideration &
Preparation of by District Approval of DRRP
DRRP Planning by District
Committee Panchayat

Vetting of DRRP
Preparation of
Entry of DRRP in by State Level
Core Network by
OMMS Standing
integrating DRRPs
Committee

Preparation of Preparation of
Approval of CNPL
CNPL & CUPL from Proposal for Road
& CUPL by District
data available in Works BY PIU
Panchayat
Core Network from CNPL
Approval of Proposal by
Scrutiny of Proposals for Approval of Proposals for
concerned District
Road Works by SRRDA Road Works by SLSC
Panchayat

Meeting Between SRRDA,

PIUs & STA regarding
Entry of DPR data in
Preparation of DPR Preparation of DPRs &
OMMS
determination of funds for
DPR preparation

Uploading Tender Preparation of Proposal by

Scrutiny of DPR by STA
Documents in OMMAS SRRDA
 Submission of Sample DPR
Approval By
Proposal to Checking by
NRRDA/MoRD
NRRDA NRRDA

Project
Allotment of
Implementation Procurement of
Funds to
& Contract Services
Concerned PIU
Management

Five Year Completion of

maintenance Plan Project
 Preparation of Project Proposals
 With commencing with the preparation of the DPR, the PIU
will hold a consultation with the local community through the
mechanism of the Gram Panchayat in order to determine the
most suitable alignment, sort out issues of land availability
(including forest land) especially due to road widening/minor
change in alignment etc., proposed tree plantation, moderate
any adverse social and environmental impact and elicit
necessary community participation in the programme. For this
purpose the PIU will organise a formal ‘Transect Walk’.

 Even though the roads taken under PMGSY-II require only up-
gradation of the existing roads whose alignment is already
fixed, still a transect walk is important, because of possible
requirement of private land for road widening or improvement
in road geometrics, for tree plantations and identify road
safety problems of pedestrians etc. including school children.
Works Under Process (Shimla)
Works Under Progress (Shimla)
 Execution of Works
Within 15 days of the date of Works Order, signboards along
with the Logo of the PMGSY should be erected at the site of
road works.

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 saving at State level will be used.
 Execution of Works
 A work Programme shall be obtained from the contractor
for each work and approved by the PIU. Payment shall
be made only after the approval of the work Programme.
 An important principal of PMGSY is the assured
availability of funds, so as to facilitate timely completion
of road works. It shall be the responsibility of the
Executive Agency to ensure timely payments to the
contractors, subject to satisfactory execution of work.
 The execution of works under PMGSY-II will be on lines
similar to as that of PMGSY-I. All efforts shall be made to
make sure that the provisions made in the DPRs are
transferred on to the ground faithfully maintaining the
quality at each stage of execution and strictly adhering
to the Stage Passing System.
 Quality Control
 Ensuring the quality of the road works is the
responsibility of the State Governments who are
implementing the Programme. Quality shall be ensured
in relation to both construction and maintenance.
 Quality Control Registers containing the results of
tests prescribed in the Quality Control Handbook shall
invariably be maintained for each of the road works.
 A site Quality Control Laboratory will be set up by
the Contractor for each package.
 Payments shall not be made to the Contractor unless
the Laboratory has been duly set up and equipped,
quality control tests are regularly conducted, recorded
and have been found to be successful.
 Three Tier Quality Control
 The PIU will be the first tier, and will supervise the
site quality control laboratory set up by the contractor. It
shall also ensure that all the tests prescribed are carried
out at the specified time and place by the specified
person/authority.
 As the Second tier of the Quality Control Structure,
Periodic inspections of works will be carried out by
Quality Control Units, engaged by the State
Government, independent of the PIUs.
 As third tier of the Quality Control Structure, the
NRRDA will engage Independent Monitors
(Individuals/Agency) for inspection at random, of the
road works under the programme.
 Three Tier Quality Control
 In case quality check by SQM or NQM reveals
‘unsatisfactory’ work, the PIU shall ensure that the
contractor replaces the material or rectifies the
workmanship( as the case may be) within the time
period stipulated.
 PIU to submit ATR on SQM/NQM reports.
 Recurrent adverse reports about quality of road works or
their maintenance in a given District/State will entail
suspension of the Programme in that area till the
underlying causes of defective work have been
addressed.
 Implementation of Works
 Changes in design during execution shall be avoided to
the extent feasible.

 Under the PMGSY Program, no excess over the sanction

project cost shall be borne by MORD. Any increase shall
be borne by States. Any Increase over 15% of the
original cost is to be subject to the Bank’s no objection.
 Monitoring
 The On-line Management, Monitoring and Accounting
System (OMMAS), developed for the purpose will be the
chief mechanism for monitoring the Programme.
 It shall be the responsibility of the Executive
Engineer/Head of the PIU to ensure effective up-time
and Internet connectivity of the computers at the
PIU/District level. He shall be responsible for ensuring
placement of all Master data including the Rural Roads
Plan in the database and for the constant updating and
accuracy of data relating to the progress of road works,
record of Quality control tests as well as the payments
made.
 In case of continued failure to update data on the
OMMAS, further releases to the State/district concerned
would be adversely affected.
 Maintenance of Rural Roads
 All PMSGY-II roads (including associated Main
Rural Links/Trough Routers of PMGSY link
routes) will be covered by 5-year maintenance
contracts.
 The experience during PMGSY-I implementation
on the maintenance of Rural Roads is far from
satisfactory.
 It is necessary now to properly account for
maintenance expenditure.
 Rural Roads Safety
 Since rural roads are generally low traffic volume
roads and accident rates are presently quite low,
safety issues relate mainly to design and
construction features and road safety consciousness
of local residents.
 It shall also ensure adequate involvement of
Panchayat Raj Institutions in road safety awareness
programmes.
 Since PMGSY-II covers important through routes
and Major Rural Links expected to carry high volume
of traffic, road safety shall be ensured through road
safety audit at the design stage, during
implementation and after completion of the project.
WORK OBSERVATIONS
Based on our past experiences, we have
compiled some observations which are being
repeated.
The aim is to bring this to your notice so
as to ensure compliance. It is also pertinent
that all these observations are not repeated in
all the Divisions but is a some total of all the
PIUs.
 SHORT–COMINGS OBSERVED IN
CONTRACT ADMINISTRATION
 Non-Employment of Technical personnel (Clause – 9)
 Non Adherence of Mandatory Insurance Requirements
(Clause – 13)
 Non Submission of work programme (Clause 26)
 Non/Delayed Provision of Field Lab (Clause 31)
 Non-Mobilization of Resources (Clause 52.2(m))
 Non-Maintenance of Photographic/Video Record
(Clause – 58.1)
 Non- erection of PMGSY Logo board (BOQ)
 SHORT–COMINGS OBSERVED IN
CONTRACT ADMINISTRATION
 Improper Handling of EOT / LD Cases
 No or less recovery stones (BOQ)
 Non renewal security deposit / performance
security
 Inadequate Protection of Environment and safety
work site. (Clause 16.3 & 19)
 Site Documents

 Site Order Book.

 Stage Passing Register.
 Material Passing Register.
 Quality Control Register (Two).
 Approved Working Drawings.
PMGSY LOGO BOARD
1. These are not being placed immediately on start of work.
2. “ World Bank Funded” is not being written.
3. Details of Roads Pavement is not being mentioned.

FORMATION CUTTING
1. Geometric design to be improved where land is available.
2. Debris should not be dumped on valley side. Due consideration be
given to environment aspects.
3. Formation Cutting surface should not be undulated.
4. Passing places 2 or 3 Nos. per km be provided, wherever land is
available.
5. Hill side slopes need to be cut to stable slopes.
 CD Works
 Individual drawing for pipe culverts are not
developed.
 Drains are not being smoothened and connected
to cross drains.
 Guard stones or parapets are not being made.
 Side filling and base is not being hand compacted
with rammer.
 CDs (HP and Slab Culverts)
 Concrete cube tests not being recorded.
 Concrete mixer and needle vibrator not available at
site.
 Weep holes be provided
 No honey combing be permitted
 Test certificate Hume pipe should be available
before placing material on work.
 Catch pits not being cleared.
 Wing wall, even if not provisioned, should be
provided.
R / WALL & B / WALL
1. Under size stone should not be used
2. Care should be taken in filling mortar at centre of wall.
3. Shaping and dressing should be done before stone is laid in
the work. Stone having rounded shape should not be used.
4. Filling along wing wall, R / wall should be done in layers.

PARAPETS
1. Parapets required on valley side for safety of traffic
2. Initially can be constructed in dry masonry but in due course
top and end layers for 15 cm are replaced by cement
masonry.

ROAD FURNITURE
Road furniture such as ground rails, sign boards and warning
signs don’t exist at certain roads and are not adequate in
number of roads. These be fixed as per requirement.
 Road Drainage
At the edges of the road land, shallow roadside drains should
be provided to drain away the water from the road. These
drains must have a designed longitudinal gradient, so that
the water is led to a natural drainage channel.

Where two roads intersect, there should be a culvert to

continue the drainage if the slope of the country demands it.

Construction of drains should be taken up simultaneously

with the progress of formation cutting work to avoid erosion
of road.
To prevent erosion of the side drains, they must have
sufficient cross-section so as to promote a non-silting
and non-scouring velocity. It is always preferable to turf
the sides of the drain to prevent erosion, which can lead
to sedimentation and reduction in carrying capacity.

Inadequate waterway (CDs) across the road cause

flooding of the land upstream; such situations must be
avoided.
 Roads Through Villages
When roads pass through villages, care shall be
taken to ensure that there are side drains to drain
away the water from the road and the discharge from
the abutting houses. The road level shall be
sufficiently above to ensure that the road itself does
not act as a drain. Provision of a concrete pavement
provides a dust-proof and low maintenance road,
which suffers less damage during occasional
overtopping.
 Roadside Plantations
To improve the landscape, suitable species of trees
and shrubs should be planted along the road. They
should preferably be at the land boundary, so that
the future encroachment of road land is avoided. The
community must be encouraged to take up tree
plantation activities and look after them. The choice
of species should be made in consultation with the
local community and should include fuel wood and
fodder species to the maximum extent.
 General Observations
 ATR being sent without physical verification or test on
ground.
 Field lab at contactor’s level is a must.
 Field lab equipment must be available.
 Supervisory staff of Contractor is inadequate.
 Test Certificate from manufacturer/ recognized lab
for material used are not being made available .
 Cement.

 Steel.

 NP-3 Pipe

 Bitumen.
 General Observations Contd….
 Work programme is not being updated. This is
not being approved by EE.
 Progress of the work is generally slow. No site
order or letter is being issued to the contractor.
 BOQ quantities executed and summary of test
conducted is not being made available.
 Prior Approval for excess quantity to be executed,
is not being obtained.
 Site document not maintained properly.
 General Recommendations
 PIU staff should not be detailed on other duties.
 Adequate transports for site supervision be made
available.
 Effective Quality Control is to be ensured.
1.) 50 % tests by JE
2.) 20 % tests by AE
3.) 5 % tests by EE
( Operational Manual 11.4.3 )
 Contractors Technical personnel and field lab
equipment be available during visits.
 Field documents must be maintained properly.
 EEs are requested to pay attention on SQM/NQM Visit
Reports (observations).
 Final Completion
1. Performance security be renewed for construction &
maintenance period + 45 days.
2. Stone recovery, if mentioned in CA, should be done.
3. Ensure following be kept in record
 Letter of Acceptance & Notice to proceed.
 Letter extension of time.
 Completion certificate.
 Details of payment including final bill & various
recoveries.
 Initial & updated work programme.
 Deviation statement.
 Insurance copies.
 Environment check list 2-C.
 As built drawings.

 Photographic record. (58.1 GCC)

 Quality Is Never An Accident
It Is Always The Result Of Intelligent Effort

There Must Be A Will

To Produce Superior Things
THANK
YOU