Pradhan Mantri Gram Sadak Yojana:- ग्रामीण क्षेत्रों का विकास करने के लिए सरकार द्वारा निरंतर प्रयास किया जाता है। जिसके लिए सरकार विभिन्न प्रकार की योजनाओं का संचालन करती है। वर्ष 2000 में पूर्व प्रधानमंत्री अटल बिहारी वाजपेई जी के द्वारा प्रधानमंत्री ग्राम सड़क योजना का शुभारंभ किया गया था

योजना के तहत गांव की सड़क कौन बनाता है? पीएमजीएसवाई के तहत सड़कों का निर्माण आईआरसी द्वारा प्रकाशित ग्रामीण विकास मंत्रालय के ग्रामीण सड़कों हेतु विनिर्देशों के अनुसार किया जाता है

प्रधानमंत्री ग्राम सड़क योजना 2023 के कांट्रेक्टर रजिस्ट्रेशन करने की प्रक्रिया

  1. कांट्रेक्टर रजिस्ट्रेशन करने हेतु आपको प्रधानमंत्री ग्राम सड़क योजना की आधिकारिक वेबसाइट पर जाना है।
  2. वेबसाइट पर जाने के बाद आपके सामने होम पेज खुल कर आएगा।
  3. होम पेज पर आपको Contractor Registration के विकल्प पर क्लिक करना है।

April 2012
Page No.

  1. Introduction 1
  2. Programme Objectives 1
  3. Guiding Principles of PMGSY and Definitions 2
  4. Planning for Rural Roads 5
  5. Funding and Allocation 7
  6. Proposals 8
  7. State Level Agencies 16
  8. Preparation of Project Proposals and their Clearance 18
  9. Scrutiny of Project Proposals 22
  10. Empowered Committee 24
  11. Tendering of Works 25
  12. Programme Implementation Units 26
  13. Execution of Works 29
  14. National Rural Roads Development Agency 31
  15. Quality Control and Supervision of Works 32
  16. Monitoring 36
  17. Maintenance of Rural Roads 37
  18. Flow of Funds 40
  19. Procedure for Release of Funds to the State Level Agency 43
  20. Audit 45
  21. Miscellaneous 45
  22. Convergence 46
    1.1 Rural Road Connectivity is not only a key component of Rural Development
    by promoting access to economic and social services and thereby generating
    increased agricultural incomes and productive employment opportunities in India,
    it is also as a result, a key ingredient in ensuring sustainable poverty reduction.
    Notwithstanding the efforts made, over the years, at the State and Central levels,
    through different Programmes, many Habitations in the country are still not
    connected by All-weather roads. It is well known that even where connectivity has
    been provided, the roads constructed are of such quality (due to poor construction
    or maintenance) that they cannot always be categorised as All-weather roads.
    1.2 With a view to redressing the situation, Government had launched the Pradhan
    Mantri Gram Sadak Yojana on 25th December, 2000 to provide all-weather access
    to eligible unconnected habitations. The Pradhan Mantri Gram Sadak Yojana 1
    (PMGSY) is a 100% Centrally Sponsored Scheme. ` 0.75/ liter out of the Cess on
    High Speed Diesel (HSD) is earmarked for this Programme.
    2.1 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 in the
    rural areas with a population of 500 persons and above in Plain areas. In respect
    of the Hill States (North-East, Sikkim, Himachal Pradesh, Jammu & Kashmir
    and Uttarakhand), the Desert Areas (as identified in the Desert Development
    Programme), the Tribal (Schedule V) areas and Selected Tribal and Backward
    Districts (as identified by the Ministry of Home Affairs and Planning Commission)*
    the objective would be to connect eligible unconnected Habitations with a population
    of 250 persons and above.
    ( *Substituted vide Circular No. P-17025/39/2010-RC dated 10/3/2011 )
    Pradhan Mantri Gram Sadak Yojana
    2.2 The PMGSY will permit the Upgradation (to prescribed standards) of the
    existing roads in those Districts where all the eligible Habitations of the designated
    population size (refer Para 2.1 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 (see Para 3.7 below).
    3.1 The spirit and the objective of the Pradhan Mantri Gram Sadak Yojana
    (PMGSY) is to provide good all-weather road connectivity to the eligible unconnected
    Habitations. A habitation which was earlier provided all-weather connectivity would not
    be eligible even if the present condition of the road is bad.
    3.2 The unit for this Programme is a Habitation and not a Revenue village or a
    Panchayat. A Habitation is a cluster of population, living in an area, the location of
    2 which does not change over time. Desam, Dhanis, Tolas, Majras, Hamlets etc. are
    commonly used terminology to describe the Habitations.
    3.3 An Unconnected Habitation is one with a population of designated size
    (refer to Para 2.1 above) located at a distance of at least 500 metre or more (1.5 km
    of path distance in case of Hills) from an All-weather road or a connected
    Habitation. 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 a cluster for this purpose@
    3.4 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 metre (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 a cluster for this purpose@
    . This
    Programme Guidelines
    cluster approach would enable provision of connectivity to a larger number of
    Habitations, particularly in the Hill/ mountainous areas.
    @Substituted vide MoRD letter No. P-17023/38/2005-RC dated 29th February, 2008)
    3.5 The eligible Unconnected Habitations are to be connected to nearby
    Habitations already connected by an All-weather road or to another existing Allweather road so that services (educational, health, marketing facilities etc.), which
    are not available in the unconnected Habitation, become available to the residents.
    3.6 A Core Network is that minimal Network of roads (routes) that is essential
    to provide Basic access to essential social and economic services to all eligible
    unconnected habitations in the selected areas through at least a single all-weather
    road connectivity.
    3.7 A Core Network comprises of Through Routes and Link Routes. Through
    Routes are the ones which collect traffic from several link roads or a long chain of 3
    Habitations and lead it to Marketing centres either directly or through the higher
    category roads i.e., the District Roads or the State or National Highways. Link
    Routes are the roads connecting a single Habitation or a group of Habitations to
    Through Routes or District Roads leading to Market Centres. Link Routes generally
    have dead ends terminating on a Habitation, while Through Routes arise from the
    confluence of two or more Link Routes and emerge on to a major Road or to a
    Market Centre.
    3.8 It should be ensured that each road work that is taken up under the PMGSY
    is part of the Core Network. While keeping the objective of Connectivity in view,
    preference should be given to those roads which also incidentally serve other
    Habitations. In other words, without compromising the basic objective (covering
    1000+ Habitations first and 500+ Habitations next and 250+ Habitations where
    eligible, last), preference should be given to those roads which serve a larger
    population. For this purpose, while Habitations within a distance of 500 metres
    from the road is considered as connected in case of plain areas, this distance
    Pradhan Mantri Gram Sadak Yojana
    should be 1.5 km (of path length) in respect of Hills.
    3.9 The PMGSY shall cover only the rural areas. Urban roads are excluded
    from the purview of this Programme. Even in the rural areas, PMGSY covers only
    the Rural Roads i.e., Roads that were formerly classified as ‘Other District Roads’
    (ODR) and ‘Village Roads’ (VR). Other District Roads (ODR) are roads serving
    rural areas of production and providing them with outlet to market centres, taluka
    (tehsil) headquarters, Block headquarters or other main roads. Village Roads (VR)
    are roads connecting villages / Habitation or groups of Habitations with each other
    and to the nearest road of a higher category. Major District Roads, State Highways
    and National Highways cannot be covered under the PMGSY, even if they happen
    to be in rural areas. This applies to New Connectivity roads as well as Upgradation
    3.10 The PMGSY envisages only single road Connectivity to be provided. If a
    Habitation is already connected by way of an All-weather road, then no new work
    4 can be taken up under the PMGSY for that habitation.
    3.11 Provision of connectivity to eligible unconnected Habitations would be
    termed as New Connectivity. Since the purpose of PMGSY, inter alia, is to provide farm
    to market access, new connectivity may involve ‘new construction’ where the link to the
    habitation is missing and additionally, if required, ‘upgradation’ where an intermediate
    link in its present condition cannot function as an all-weather road (see Para 3.12
    3.12 Upgradation, when permitted (refer Para 2.2 and 3.11 above) would
    typically involve building the base and surface courses of an existing road to
    desired technical specifications and / or improving the geometrics of the road, as
    required in accordance with traffic condition (see also Para 3.14 below).
    3.13 The primary focus of the PMGSY is to provide All-weather road connectivity
    to the eligible unconnected Habitations. An All-weather road is one which is
    negotiable in all seasons of the year. This implies that the road-bed is drained
    Programme Guidelines
    effectively (by adequate cross-drainage structures such as culverts, minor bridges and
    causeways), but this does not necessarily imply that it should be paved or surfaced
    or black-topped. Interruptions to traffic as per permitted frequency and duration may
    be allowed.
    3.14 There may be roads which are Fair-weather roads. In other words, they
    are fordable only during the dry season, because of lack of Cross Drainage (CD)
    works. Conversion of such roads to All-weather roads through provision of CD
    works would be treated as upgradation. It must be noted that on all the road
    works of the PMGSY, provision of necessary CD works is considered an essential
    3.15 PMGSY does not permit repairs to Black-topped or Cement Roads, even if the
    surface condition is bad.
    3.16 The Rural Roads constructed under the Pradhan Mantri Gram Sadak
    Yojana will be in accordance with the provisions of Ministry of Rural Development’s 5
    Specification for Rural Roads and specifications as given in the Rural Roads
    Manual (IRC:SP20:2002). In case of Hill Roads, for matters not covered by the
    Rural Roads Manual, provisions of Hill Road Manual (IRC:SP:48-1998) may apply.
    4.1 Proper planning is imperative to achieve the objectives of the Programme in
    a systematic and cost effective manner. The Manual for the Preparation of District
    Rural Roads Plan and the Core Network, shall be treated as part of the Guidelines
    and would stand amended to the extent modified by the present Guidelines. The
    Manual lays down the various steps in the planning process and the role of different
    Agencies including the Intermediate Panchayat, the District Panchayat as well as
    the State Level Standing Committee. In the identification of the Core Network, the
    Pradhan Mantri Gram Sadak Yojana
    priorities of elected representatives, including MPs and MLAs, are expected to be
    duly taken into account and given full consideration. The Rural Roads Plan and
    the Core Network would constitute the basis for all planning exercises under the
    4.2 The District Rural Roads Plan would indicate the entire existing road
    network system in the District and also clearly identify the proposed roads for
    providing connectivity to eligible Unconnected Habitations, in an economic and
    efficient manner in terms of cost and utility. The Core Network will identify the
    roads required to assure each eligible Habitation with a Basic Access (single
    allweather road connectivity) to essential social and economic services. Accordingly,
    the Core Network would consist of some of the existing roads as well as all the
    roads proposed for new construction under the PMGSY.
    4.3 In proposing the new links under the District Rural Roads Plan, it would
    be first necessary to indicate the weightage for various services. The District
    6 Panchayat shall be the competent authority to select the set of socio-economic
    / infrastructure variables best suited for the District, categorises them and accord
    relative weightages to them. This would be communicated to all concerned before
    commencing the preparation of the District Rural Roads Plan.
    4.4 The Plan would first be prepared at the Block level, in accordance with
    the directions contained in the Manual and the priorities spelt out by the District
    Panchayat. In short, the existing road network would be drawn up, unconnected
    Habitations identified and the roads required to connect these unconnected
    Habitations prepared. This shall constitute the Block Level Master Plan.
    4.5 Once this exercise is completed, the Core Network for the Block is identified,
    by making best use of the existing and proposed road facilities in such a manner
    that all the eligible Habitations are assured of a Basic access. It must be ensured
    that every eligible Habitation is within 500 metre (1.5 km of Path length in the Hills
    and 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
    Programme Guidelines
    10 km may be treated as a cluster for this purpose@
    ),of a connected Habitation
    or an All-weather road (either existing or planned). In drawing up the proposed
    road links, the requirements of the people must be taken into account, through the
    socio-economic/infrastructure values (Road Index) suitably weighted (see Para
    4.3) and the alignment having the higher Road Index ought to be considered for
    (@Substituted vide MoRD letter No. P-17023/38/2005-RC dated 29th February, 2008)
    4.6 The Block level Master Plan and the Core Network are then placed before the
    Intermediate Panchayat for consideration and approval of the Core Network. They
    are simultaneously sent, along with the list of all unconnected Habitations to the
    Members of Parliament and MLAs, for their comments, if any. After approval by the
    Intermediate Panchayat, the Plans would be placed before the District Panchayat
    for its approval. It will be incumbent on the District Panchayat to ensure that the
    suggestions given by the Members of Parliament are given full consideration within
    the framework of these Guidelines. Once approved by the District Panchayat, a 7
    copy of the Core Network would be sent to the State-level Agency as well as the
    National Rural Roads Development Agency. No road work may be proposed under the
    PMGSY for New Connectivity or Upgradation (where permitted) unless it forms part of
    the Core Network.
    5.1 Once the Core Network is prepared and pavement condition survey
    conducted (see para 6.2), it is possible to estimate the length of roads for New
    Connectivity as well as Upgradation for every District. States may, each year,
    distribute the State’s Allocation among the Districts giving at least 80% on the
    basis of road length required for providing connectivity to Unconnected Habitations and
    upto 20% on the basis of road length requiring Upgradation under the PMGSY. The
    District-wise allocation of funds would also be communicated to the NRRDA and
    STAs every year by the State Government.
    Pradhan Mantri Gram Sadak Yojana
    5.2 In making the District-wise allocation, the road lengths already taken up
    under the PMGSY or any other Programme may be excluded (even if the road
    works are still under execution). The figures of new construction length will thus keep
    on changing every year till such time as all Unconnected Habitations (of the eligible
    population size) have been covered in the District.
    5.3 In addition to the allocation to the States, a special allocation of upto 5% of
    the annual allocation from the Rural Roads share of the Diesel Cess will be made
    (i) Districts sharing borders with Pakistan and China (in coordination with
    Ministry of Home Affairs)
    (ii) Districts sharing borders with Myanmar, Bangladesh and Nepal (in coordination
    with Ministry of Home Affairs)
    8 (iii) Selected Tribal and Backward Districts (under IAP) identified by the Ministry
    of Home Affairs and Planning Commission.
    (iv) Extremely backward Districts (as identified by the Planning Commission)
    which can be categorised as Special Problem Areas
    (v) Research & Development Projects and innovations.
    6.1 All Districts having eligible unconnected Habitations are to prepare Block
    and District level Comprehensive New-Connectivity Priority Lists (CNCPL) for
    those Districts, of all proposed road links under PMGSY, grouping them in the
    following general Order of Priority.
    Priority # Population size of Habitations being connected
    I 1000+
    Programme Guidelines
    II 500 – 999
    III 250 – 499 (where eligible as per Para 2.1)
    The CNCPL list will be prepared with following format:
    S.No. Name of TR / Code in
    road LR CN
    Population Habs to be status
    served connected (earthen track
    Name &
    no. of TR
    (CN – Core Network / TR – Through Route / LR – Link Route)
    6.2 In order to manage the rural road network for upgradation and maintenance
    planning, all States will carry out, every 2 years, a Pavement Condition Survey
    of all Through Routes (in case Through Routes are not part of the rural roads, of
    the next lower category of Main Rural Links or MRL). Detailed Guidelines on the
    methodology and analysis will be issued by the Ministry from time to time. The 9
    Survey will yield a Pavement Condition Index (PCI) on a scale of 1 to 5. The results
    of the survey will be recorded in the PCI Register in the following format:
    District:___ Block:___
    Year Amount spent
    of road
    Code Name of
    no.in Length habitations
    CN Connected
    of last
    Population Year of
    served construction
    on routine Type of Length Date
    ADT* PCI
    maintenance pavement (km) of PCI
    since PR
  • if already done (can be done separately)
    All upgradation and maintenance prioritisation will be done from this list.
    6.3 In respect of Districts where no new connectivity is required to be done, a
    Comprehensive Upgradation Priority will be prepared based on the PCI (see Para
    Pradhan Mantri Gram Sadak Yojana
    6.2 above) of the rural Through Routes of the Core Network, as follows:
    (i) Priority-I will be Through Routes which are constructed as WBM roads.
    In such cases, upgradation will comprise of bringing the existing profile to
    good condition (along with improvement in geometrics, necessary drainage
    works and road signage) and providing the appropriate crust and surface as
    per design requirement.
    (ii) Priority-II are other fair weather through routes or gravel through routes or
    through routes with missing links or lacking cross drainage. In such a case
    upgradation will consist of converting the road into an all-weather one with
    appropriate geometries and all necessary provisions.
    (iii) Priority-III will be other through routes which are at the end of their design
    life, whose PCI is 2 or less, i.e., are ‘poor’ or ‘very poor’. In such cases,
    upgradation will include improvement in geometric design where necessary,
    10 with width, surfacing, etc., as per projected traffic requirements.
    (iv) Presently, sealed-surface all-weather roads with PCI more than 2 and
    sealed-surface all-weather roads which are less than 10 years old (even if PCI
    is less than 2) will not be taken up for upgradation.
    (v) Within each priority class, qualifying roads will be arranged in order of
    population served (directly and through population served in link routes),
    as a rough indication of traffic expected. However, States are advised to
    conduct an Average Daily Traffic (ADT) Survey at the earliest. Based on
    the time at which the traffic survey is carried out (such as Peak or Lean
    Seasons) the same is to be adjusted for seasonality in order to arrive at
    an Annual Average Daily Traffic (AADT) estimate, which is the basis for
    the prioritisation as well as the design. (An axle load survey may also be
    carried out, on selective basis, on the roads where heavy traffic is expected
    with wide variations in the Axle Load Spectrum. Proposals for this purpose
    approved by NRRDA will be eligible for reimbursement of expenses).
    Programme Guidelines
    (vi) In case in any District, the Through Roads defined in the Core Network do
    not belong to the Rural Roads category, the Main Rural Links (emanating
    from the Through Route) will be considered for upgradation on similar lines
    indicated above.
    The work of preparing the Comprehensive Upgradation Priority will be taken up only
    in those districts which are likely to complete new connectivity to eligible
    habitations within the next 1 year. The Comprehensive Upgradation Priority
    List (CUPL) will be prepared District-wise for each Priority class (where only a
    truncated portion of the road is to be taken under upgradation, only that portion
    needs to be mentioned, by chainage) on the following proforma:-
    Priority class ——–
    Road Name of
    Block code in through
    CN route / MRL
    Year of of last
    construction periodic
    of the
    surface PCI AADT
    type 11
    served by
    The CUPL will be got verified on the ground on sample basis through the STAs and
    the NQM system before it is processed for further approvals. The STAs will do 100%
    verification of the List for consistency on the basis of the PCI data given by the District
    and also sample ground checking.
    6.4 After the CNCPL / CUPL is prepared and verified, it shall be placed before
    the District Panchayat. The Members of Parliament / MLAs shall be given a copy of
    the CNCPL / CUPL and their suggestions and suggestions of lower level Panchayati
    Institutions shall be given the fullest consideration by the District Panchayat while
    according its approval. The CNCPL shall be the basis of all new connectivity
    Pradhan Mantri Gram Sadak Yojana
    proposals and the CUPL shall be the basis of all upgradation proposals in Districts
    where no new connectivity remains to be done.
    6.5 The list of road works to be taken up under the PMGSY will be finalised
    each year by the District Panchayat in accordance with the Allocation of Funds
    communicated to the District (see Para 5.1). The District Panchayat shall finalise
    the list through a consultative process involving lower level Panchayati institutions
    and elected representatives (see Para 6.9 below). It must be ensured that the
    proposed road works are part of the Core Network and that New Connectivity is
    given primacy.
    6.6.1 In States where existing rural through routes are in reasonably good
    condition (i.e., PCI is generally above 3) the prioritisation of new links will be taken up
    for construction as per the order of the CNCPL.
    6.6.2 In States where the existing rural Through Routes are in very poor condition
    12 (PCI is generally 3 or less) because of neglect of maintenance, upgradation /
    renewal of through routes may be taken up as an adjunct to new connectivity and the
    procedure will be as follows:
    Step 1 Select the New Connectivity Link as per CNCPL in order of
    Step 2 Identify the rural Through Routes (called associated Through
    Route) from which the new link is taken off till such road reaches the
    nearest market centre / higher category road.
    Step 3 Find out the Pavement Condition of the associated rural
    Through routes identified in Step 2 (from the PCI Register).
    Programme Guidelines
    Step 4 Decide the type of intervention required based on the PCI. This
    implies a decision whether the roads leading to the market
    centre require Upgradation or Surface Renewal or Routine
    Maintenance. Roads having PCI 3 and below and 6 years or
    more old can be taken up for Upgradation / Renewal. For the
    roads with PCI above 3, or whose age is less than 6 years,
    Routine Maintenance or, if due, Renewal will be adequate,
    unless there are structural / geometrical / drainage deficiencies
    which need to be improved through Upgradation.
    Step 5 Include all other eligible new links as per Comprehensive New
    Connectivity Priority List (CNCPL) coming on to the Through
    Routes identified in Step 3 even if such links are lower in the
    Order of the Priority. These eligible new links would be the
    subsidiary link routes.
    Step 6 Each project will thus comprise of a sub-network of a primary
    new connectivity link, the associated Through Route(s) and 13
    subsidiary new connectivity links (falling on the associated
    Through Routes). The project proposal will include new
    construction for the new links and upgradation / renewal of the
    Through Routes based on age and PCI. Generally each such
    project would form a package for tendering purposes (all the
    packages of a particular year would form a Batch for future
    maintenance purposes).
    Step 7 Make a rough estimate of the project cost based on per km
    construction / upgradation cost, and take up additional links
    from the CNCP list and repeat steps 1 to 5 till the total cost of the
    selected projects cover the District allocation.
    6.7 In case of Districts where no new connectivity remains, only the existing
    rural Through Routes may need upgradation. In such cases the Comprehensive
    Upgradation Priority List (CUPL) will apply and road works will be selected out of
    Pradhan Mantri Gram Sadak Yojana
    the CUPL in order of priority.
    6.8 In drawing up the annual list of the road works, the District Panchayat shall
    ensure that the Order of Priority for New Connectivity / Upgradation is strictly
    followed. The only exception (in new connectivity links) from the order of priority is
    in respect of those routes of the Core Network that include the Village Panchayat
    Headquarters or Market Centres or other educational or medical essential services
    or those which stand notified by the State Government as places of tourist interest.
    In such cases, new connectivity may be taken up irrespective of the population
    6.9 The Annual proposals will be based on the CNCPL or CUPL as the case may
    be, following the Order of Priority. However, it is possible that there are inadvertent
    errors or omissions, particularly in the associated through routes or subsidiary link
    routes in case of new connectivity. Accordingly it is desirable to also associate
    public representatives while finalising the selection of road works in the annual
    14 proposals in the Core Network. The proposals of the Members of Parliament are
    required to be given full consideration, and for this purpose:
    (i) 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.
    (ii) 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 consideration of equitable allocation of funds.
    (iii) The proposals received from the Members of Parliament by the stipulated
    Programme Guidelines
    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 non-inclusion. It
    would be preferable if the communication is issued from the Nodal
    Department at a senior level.
    6.10 While Lok Sabha Members will be consulted in respect of their constituencies,
    Rajya Sabha Members will be consulted in respect of that District of the State they
    represent for which they have been nominated as Co-Chairman of the District
    Vigilance & Monitoring Committee of the Ministry of Rural Development.
    6.11 The Order of Priority and the CNCPL / CUPL will be the twin basis for
    making proposals. Where road works of a higher order of priority still remain to be
    taken up, road works of a lower order of priority will not be taken up in the same
    District (subject to Para 6.8) except if it is not feasible to execute the road work
    for reasons of non-availability of land etc. While finalising the District proposal, the 15
    District Panchayat shall record and communicate the reason in each such case that
    a higher priority road is left out and lower priority road is proposed.
    6.12 It will be the responsibility of the State Government / District Panchayat to
    ensure that lands are available for taking up the proposed road works. A certificate that
    Land is available must accompany the proposal for each road work. It must be noted
    that the PMGSY does not provide funds for Land Acquisition. This does not however
    mean that acquisition cannot be done by the State Government at its own cost. The
    State Government may also lay down guidelines for voluntary donation, exchange or
    other mechanisms to ensure availability of land. The process of making land
    available for the road works should sub-serve the common good and also be just and
    equitable. The details of land made available should be reflected in the local land
    records to avoid dispute.
    6.13 It may be that road works are sometimes held up because at the time of
    preparation of DPR actual availability of land was not investigated or because
    Pradhan Mantri Gram Sadak Yojana
    local Panchayat was not taken into confidence about the proposed alignment and
    disputes subsequently arose. As part of the PMGSY process, all States shall include a
    simple non-formal “transect walk” to be organized by the Assistant Engineer at the
    time of preparation of DPRs. The Panchayat Pradhan, local patwari and the JE would
    participate. Forest Department officials would be included where forest land is likely to
    be involved. (see Para 8.4)
    7.1 Each State Government (including UT Administrations) would identify one
    or two suitable Agencies (having a presence in all the Districts and with established
    competence in executing time-bound road construction works), to be designated
    as Executing Agencies. These could be the Public Works Department / Rural
    Engineering Service / Organisation / Rural Works Department / Zilla Parishad
    / Panchayati Raj Engineering Department etc. who have been in existence for
    a large number of years and have the necessary experience, expertise and
    16 manpower. In States where more than one Executing Agency has been identified
    by the State Government, the distribution of work would be done with the District as a
    unit. In other words, each District will be entrusted to only one Executing Agency.
    The Executing Agency will have a Programme Implementation Unit (PIU) in the
    District, or a compact group of Districts, with an officer of the rank of at least Executive
    Engineer as its head.
    7.2 The Administrative Department of the State Government responsible for the
    Executing Agency entrusted with the execution of the road works will be the Nodal
    Department. In the event of there being more than one Executing Agency, under
    different administrative departments, the State Government would nominate that
    department as the nodal department which is officially responsible for the
    management and maintenance of rural roads.
    7.3 The Nodal Department will identify a State-level autonomous Agency
    (Society etc), to be called the State Rural Roads Development Agency (SRRDA),
    with a distinct legal status, under its control for receiving the funds from the Ministry
    Programme Guidelines
    of Rural Development, as indicated in Para 18 below. If there is no such State-level
    Agency, the Nodal Department will take steps to register an Agency under the
    Registration of Societies Act, (there should not be more than one Agency), so as
    to be able to receive the funds. The Secretary in charge of the Nodal Department
    or a senior officer will be the Chief Executive. All the proposals will be vetted by the
    Agency before they are put up to the State-level Standing Committee and are sent
    to the NRRDA for obtaining clearance of the Ministry of Rural Development.
    7.4 To ensure streamlined functioning and adequate coordination (especially
    where there is more than one executing agency), officers of the PIU need to be made
    fully accountable to the SRRDA and be brought under its administrative control.
    The SRRDA would function as the dedicated agency of the state nodal department
    for rural roads, to ensure the integrated development of rural roads through the
    various schemes including PMGSY. For this purpose the SRRDA will designate a
    Chief Executive Officer, a Financial Controller, an Empowered Officer, an IT nodal
    officer and a State Quality Coordinator.
    7.5 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
    Development, 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) monitor progress and quality control
    (b) resolve issues relating to land availability and forest / environment clearance
    (c) oversee maintenance funding arrangements for the Core Network
    Pradhan Mantri Gram Sadak Yojana
    (d) review capacity at SRRDA and PIU levels including financial management
    and on-line management and monitoring; and
    (e) ensure convergence of development programmes including transport
    facilities on the constructed roads
    8.1 After approval by the District Panchayat (refer Para 6.1 above), the proposals
    would be forwarded through the PIU to the SRRDA (refer Para 7.3 above). The
    PIU will at that time prepare the details of proposals forwarded by the Members of
    Parliament, and action taken thereon, in Proformae MP -I and MP -II and send it
    along with the proposals. In all cases where the proposal of an MP has not been
    included, cogent reasons shall be given based on the reasons given by the District
    8.2 The SRRDA shall vet the proposals to ensure that they are in accordance
    with the Guidelines and shall place them before the State-level Standing Committee
    along with the MP-I & MP-II Statements.
    8.3 The State Level Standing Committee would scrutinise the proposals to
    see that they are in accordance with the Guidelines and that the proposals of
    the Members of Parliament have been given full consideration. After scrutiny by
    the State Level Standing Committee, the Programme Implementation Units (PIUs)
    will prepare the Detailed Project Report (DPRs) for each proposed road work in
    accordance with the Rural Roads Manual and instructions issued from time to
    8.4 While 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), moderate any adverse social and environmental
    impact and elicit necessary community participation in the programme. For this
    Programme Guidelines
    purpose the PIU will organise ‘Transect Walk’ as follows:
    · The Transect walk shall be undertaken by the AE/JE, accompanied by the
    Patwari and the Pradhan/Panch of the Panchayat / Ward after adequate
    advance publicity. The local Forest official may also be associated.
    · During the walk, issues relating to alternative alignments, land requirements
    for the road and its impact on landowners, etc. will be discussed with
    members of the local community present.
    · Environmental impact on vegetation, soil and water etc. shall be identified
    for resolution.
    · Digital photographs of the Transect walk must be taken.
    · During the walk, due opportunity shall be given to interested persons to put
    forward their point of view.
    · At the end of the walk, alignment shall be finalised after recording the
    issues that arose during the walk and the action taken / proposed to resolve
    the issues. This shall be reduced to writing signed by the Pradhan / Panch,
    Secretary of the Gram Panchayat Members present. A copy of these
    minutes along with digital photographs of Transect Walk must be attached to
    the finalised DPR.
    8.5 The PIU will ensure the following in preparing the Detailed Project reports:
    (i) The Rural Roads constructed under the Pradhan Mantri Gram Sadak Yojana
    must meet the technical specifications and geometric design standards
    given in the Rural Roads Manual of the IRC (IRC:SP20:2002) and also,
    where required, the Hill Road Manual (IRC:SP:48-1998).
    (ii) The choice of design and surface for the road would be determined, inter
    Pradhan Mantri Gram Sadak Yojana
    alia, by factors like traffic, soil type and rainfall, following the technical
    specifications laid down in the Rural Roads Manual (IRC:SP20:2002).
    Normally rural roads would need to be designed to carry upto 45 commercial
    vehicles per day (CVPD) only. All cases of design for new construction
    where a higher traffic is projected need detailed justification. In the case
    of new construction for eligible Habitations of population below 1,000
    where traffic expected is likely to remain very low (below 15 CVPD), in the
    interest of economy, the road would generally be designed for a gravel or
    other unsealed surface as provided in the Rural Roads Manual, subject to
    considerations of rainfall. In case of new construction to connect Habitations
    with population below 500 where the projected traffic growth is likely to be
    very low, the carriageway may further be restricted to 3.0 m.
    (iii) Where the road passes through a Habitation, the road in the built-up area
    and for 50 metre on either side may be appropriately designed preferably
    as a Cement Road or with Paved Stones, besides being provided with side
    20 drains. Appropriate side drains and cross drainage will be provided, so that
    improper drainage does not damage the road or the dwellings alongside.
    (iv) Wherever local materials, including Fly Ash, are available, they should be
    prescribed subject to adherence to technical norms and relevant Codes of
    (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
    Programme Guidelines
    Government having jurisdiction and the pro rata costs beyond 50m (75
    meters in respect of the Selected Tribal and Backward Districts (under IAP) as
    identified by the Ministry of Home Affairs and Planning Commission) 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.
    (Substituted vide MoRD letter No. P-12025/8/2001-RC(pt) dated 17th December, 2008)
    (vi) In the case of Hill States, the estimates for new construction works may be
    prepared in two parts wherever circumstances so require. As such:
    (a) The first stage will consist of formation cutting, slope stabilization,
    protection works and drainage works. 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. The
    second stage will include the WBM layers and bituminous surface 21
    course. The habitations concerned will not be counted as ‘connected’ till
    the second stage is taken up.
    (b) Where State Government agrees as a policy that ‘unsealed’ surfaces
    are adequate in certain conditions like low traffic, the formation cutting,
    slope stabilization and protection works, complete drainage works
    and appropriate surface course treatment (to ensure all- weather
    connectivity) will all be included in the first stage and work executed.
    In such cases, the habitations will be counted as ‘connected’ on
    completion of the first stage itself, as there will be no second stage
    8.6 A separate maintenance component to be 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), the component shall comprise of
    5-year routine maintenance.
    Pradhan Mantri Gram Sadak Yojana
    (b) In case of associated rural Through Routes not requiring upgradation, the
    component shall include 5-year, routine maintenance including one renewal
    as per cycle.
    (c) In case of Through Routes taken up for upgradation, 5-year routine
    maintenance and a renewal at the end of the period.
    The maintenance component will be contracted out along with the new construction
    / upgradation, to the same contractor. In case the Through Route is not a rural
    road, the same provision will apply to the Main Rural Links (MRL) identified in the
    Core Network.
    8.7 In respect of Hill roads, if construction is in two stages, the initial 5-year
    maintenance contracting will be done at the time of contracting the work for the 2nd
    stage. Interim maintenance, clearance of slips etc., in the period between the 1st and
    nd stage may be done departmentally.
    8.8 The cost of preparing DPR, including investigation, survey and testing and
    trace cutting (in case of hill areas) will form part of the project cost, and may be met
    from the funds in hand with the SRRDA subject to future book adjustment on
    clearance of the proposal at such rates as may be prescribed by the Ministry /
    NRRDA from time to time.
    8.9 The detailed estimates will be based on the State Schedule of Rates (SSR)
    prepared using the Book of Specifications and Standard Data Book prescribed by the
    8.10 The State Schedule of Rates (SSR) shall be published annually and used for
    all rural roads. The Schedule may be District or Circle specific
    9.1 NRRDA has identified in consultation with each State Government, reputed
    Programme Guidelines
    Technical Institutions, designated as State Technical Agencies (STAs) to provide
    outsourced technical support to the PIUs. The STAs would vet the District Roads
    Plan and Core Network, check the CNCPL and CUPL and scrutinise the DPRs
    prepared under the Annual proposals. The coordination of activities of the STAs
    would be performed by the NRRDA, who may add to or delete institutions from
    the list, as well as to entrust specific tasks to them. NRRDA may from time to time
    identify additional technically qualified agencies to provide these services to the
    State Governments and to perform such other functions as may be necessary in
    the interest of the Scheme.
    NRRDA will also designate reputed Technical and Research Institutions such as
    the Indian Institutes of Technology as Principal Technical Agency (PTA) for group
    of States. The PTAs will provide technical support, take up research projects, study and
    evaluate different technologies and advise on measures to improve the quality and
    cost norms of Rural Roads. The Principal Technical Agencies shall also coordinate the
    work of the STAs in their jurisdiction.
    9.2 After making entries in the On-Line Management, Monitoring and Accounting
    System (OMMAS) Software (see para 16.1), the PIU will forward the proposals
    along with the Detailed Project Reports to the STAs for scrutiny of the design and
    estimates. The prescribed Proformae F-1 to F-8 will form part of the DPR.
    9.3 After verifying that the DPRs have been entered in the OMMAS, the
    DPRs are to be scrutinised by the STA in the light of the PMGSY Guidelines, IRC
    specifications as contained in the Rural Roads Manual (IRC SP20:2002) and where
    necessary the Hill Road Manual, and the applicable Schedule of Rates. In doing so, it
    shall be ensured that no lead charges would be payable for transportation of soil
    (except in case of Black Cotton Soil / Sodic soil or in village portions). The STA will in
    particular check the following:
    (i) certificate of land availability;
    (ii) proceedings of the transect walk;
    Pradhan Mantri Gram Sadak Yojana
    (iii) conformation to CNCPL / CUPL;
    (iv) full justification in case projected traffic for new construction exceeds 45 CVPD;
    (v) separate DPR where CD span exceeds 25 meters;
    (vi) economy of design, including use of gravel surfacing, local materials and
    fly ash;
    (vii) preparation of estimates for 5-year routine maintenance and periodic renewal
    of the Through Route as per Para 8.6 of the Guidelines.
    The STA will countersign the Proforma, make confirmatory entry in the OMMAS
    software and return the scrutinised DPR to the PIU, whereupon the PIU will forward the
    scrutinised DPRs to the SRRDA through the prescribed channel.
    9.4 The SRRDA will consolidate the proposals from the PIUs, after verifying that
    they have been duly scrutinised by the respective STAs. They will then prepare the
    24 State Abstract on proforma specified, and send all the Project proposals to the
    NRRDA along with the proformae MP-I, MP-II and MP-III.
    9.5 The NRRDA will thereupon scrutinise the proposals received from the
    SRRDA to ensure that the proposals have been made duly keeping in view the
    Programme Guidelines and that they have been duly verified by the STAs. The
    proposals for each State would then be put up before the Empowered Committee
    for consideration.
    10.1 At the Central level, the Annual Project proposals received from the State
    Governments by NRRDA would be considered by Empowered Committee, to be
    chaired by Secretary, Department of Rural Development. The representatives of
    the State Government whose proposals are being considered by the Empowered
    Committee may be invited to attend the Meetings, as and when required. The
    Programme Guidelines
    Empowered Committee will review the institutional preparedness of the State
    executional machinery, particularly with respect to technical and quality issues,
    and the contracting capacity available and the State’s ability to maintain the
    already created assets. The recommendations of the Empowered Committee
    would, thereafter, be submitted to the Minister of Rural Development and in case
    the proposals meet the programme requirements, they will be cleared.
    10.2 The Ministry will communicate the clearance of the Proposals to the State
    Government. It may, however, be noted that clearance by the Ministry does not
    imply Administrative or Technical sanction of the proposals. The procedures of the
    State Government / SRRDA in this regard would be followed. The Authorised Officer
    of the Executing Agency would have to record the Technical Sanction on each DPR
    before action is taken to tender the works.
    10.3 Once approved, the alignment of the road should not be changed without
    obtaining the concurrence of the District Panchayat, the STA and the SLSC.
    11.1 After the project proposals have been cleared and Technical Sanction has
    been accorded, the Executing Agency would invite tenders. The well-established
    procedure for tendering, through competitive bidding, would be followed for all
    projects. All the projects scrutinised by the STA and cleared by the Ministry, will be
    tendered as such, and no changes shall be made in the work without the prior
    approval of the NRRDA. The States will follow the Standard Bidding Document
    (SBD), prescribed by the NRRDA, for all the tenders.
    11.2 Since PMGSY places high emphasis on time and quality, States shall take
    steps to increase competition and to realistically assess Bid capacity. To this end
    States shall ensure that all Tender notices are put out on the Internet under the
    OMMAS. Centralised evaluation of Bid capacity will be done to give effect to the
    provision of the SBD. States may empower the SRRDA to call and decide tenders in
    the interest of speeding up the process.
    Pradhan Mantri Gram Sadak Yojana
    11.3 The tendering and contracting process and time periods will be as per the
    SBD (Para 13.1 also refers). The State shall at all times update the OMMAS
    tendering module to enable downloading of tender documents. Details of contracts
    entered into shall also be immediately entered into database.
    11.4 Within 15 days of the date of Work Order, signboards along with the Logo
    of the PMGSY should be erected at the site of road works. The Signboards should
    indicate the name of the Programme (PMGSY), name of the road, its length,
    estimated cost, date of commencement and due date of completion of construction
    and name of the executing contractor. It is desirable that after completion of
    construction, this is in the form of a permanent brick-masonry/ concrete structure
    at both ends of the road.
    11.5* 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
    26 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 District
    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 within the phase / batch failing which net savings at State level within the
    phase/ batch will be used for the purpose. Data change in OMMAS in such cases
    would be made with NRRDA’s authorisation.”
    (*Substituted vide MoRD letter No. P-17025/2/2008-RC dated 23rd January, 2008)
    12.1 At the District level, the Programme will be co-ordinated, and implemented
    through a dedicated Programme Implementation Unit (PIU). All PIUs will be
    Programme Guidelines
    manned by competent technical personnel from amongst the available staff or
    through deputationists. In exceptional cases and with the prior approval of NRRDA,
    Consultants may be engaged to build up or enhance capacity. NRRDA’s Model
    documents shall be used for the purpose.
    12.2# All staff costs will be borne by the State Government. The Pradhan Mantri
    Gram Sadak Yojana does not provide for any staff costs. However, the administrative and
    travel expenses of PIUs and SRRDA costs will be met to the following extent, with the
    State Government bearing any additional costs:
    Item % of funds released
    (a) Admin. expenses for PIUs 1.00%
    (b) Travel Expenses of PIUs 0.50%
    (c) Admin. & Travel expenses (SRRDA) 0.25% ( ` 50 lakh maximum)*
    (d) Independent Quality Monitoring 2nd 0.50%
  • Excluding cost of procurement of computer hardwares and laboratory equipment
    For this purpose:
    (i) Administrative expenses shall, in addition to usual office expenses,
    include all expenses incurred in relation to the operation of the OMMAS
    computers and their maintenance, including internet charges and data
    entry costs. Amounts paid on account of outsourcing of execution and
    management related functions may also be paid out of administrative
    expenses within the limits prescribed. However, expenditure on
    purchase of vehicles, payment of salaries & wages and purchase or
    construction of buildings is not permissible.
    (ii) Upgradation/replacement of computer hardware of the SRRDAs
    and PIUs as well as provision of hardware to the newly established
    PIUs for operationalisation of OMMAS would be a permissible item of
    Pradhan Mantri Gram Sadak Yojana
    administrative expenditure.
    (iii) Procurement of laboratory equipments for the newly established
    laboratories at the district, regional and state level as well as for
    strengthening of the existing laboratories at these levels would also
    be an admissible item of expenditure under administrative expenses.
    (iv) Procurement of computer hardware and laboratory equipment as
    suggested above would be allowed within the limit of 1.75% of funds
    released to the SRRDAs and the PIUs for their administrative and
    travel expenses. However, 0.50% of funds which has been provided
    for the second tier quality monitoring should not be used for this
    (v) The ceiling of ` 50 lakhs for administrative and travel expenses
    of SRRDA is exclusive of expenditure incurred on procurement
    28 of computer hardware for the SRRDA/PIUs and procurement of
    laboratory equipment for district, regional, State level laboratories.
    (vi) The amounts shall be released to the SRRDA along with programme
    fund releases. The SRRDA shall further allocate the amounts (by way
    of limits set by the Empowered Officer) in respect of sl. no. a) & b)
    to PIUs generally in proportion to the funds released to them, also
    keeping in view the actual pace of work and requirements in the PIUs.
    (vii) In case works lapse or are dropped at a later stage, necessary
    adjustment will be made while releasing the next tranche of expenses.
    (viii) Funds for the purpose will be kept in a separate account ‘Administrative
    Expenses Fund Account’ operated in a manner similar to the
    Programme Fund Account (see Para 18). State Government funds
    for administrative expenses and incomes of the Agency used for
    administrative purposes may also be kept in the same account, but
    Programme Guidelines
    no other funds shall be credited to the account nor shall the account be
    used other than for defraying admissible administrative, travel and quality
    monitoring expenses.
    (ix) The releases of administrative and travel expenses shall be dependent
    (a) continued updating of OMMAS modules
    (b) appropriate dedication of the PIU and its clear linkage to the
    SRRDA; and
    (c) adequate institutional mechanism at the SRRDA level including
    nodal IT officer, State Quality Coordinator, Financial Controller
    and Empowered Officer.
    (#Substituted vide MoRD letter No. P-17025/2/2008-RC dated 26th June, 2008)
    12.3 No Agency charges will be admissible for road works taken up under 29
    this Programme. In case Executing Agencies levy charges in any form, such as
    Centage charges etc., it would have to be borne by the State Government.
    13.1 The relevant projects would be executed by the PIUs and completed within a
    period of 9 months from the date of issue of the Work order. 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, deployment by the
    Contractor of the requisite number of engineers and setting up of the Quality Control
    Laboratory at site. In this connection, it is clarified that:
    (i) The period of 9 months shall comprise 9 working months. In case the
    period for execution is likely to be adversely affected by monsoon or other
    seasonal factors, the time period for execution may be suitably determined
    while approving the work programme, but shall not exceed 12 calendar
    Pradhan Mantri Gram Sadak Yojana
    months in any case.
    (ii) Where a package comprises more than one roadwork, the total time given
    for completion of the package shall not exceed 12 calendar months.
    (iii) Time limit up to 18 calendar months would be allowed for completion of
    Stage-I works of hill roads (in hill states). In respect of Hill States where the
    work may be executed in two stages, the time limit for completion of State-II
    works will remain the same as mentioned at (i) & (ii) above. Similarly, time
    period of 18-24 months would be allowed for completion of cross drainage
    works exceeding 25 meter length, depending on site conditions. In both
    cases, however, no extra liability, if any, on account of cost escalation
    shall be met from the programme funds provided by the Ministry of Rural
    Development. These conditions may be incorporated in the bid documents
    for bids to be invited for PMGSY projects in future &.
    30 (
    & Modified vide MoRD letter No. P-17011/3/2005/PIII dated 28th January, 2008)
    (iv) In case of Selected tribal and backward districts, the time limit upto 24
    calendar months would be allowed for completion of work. However, no
    extra liability, if any, on account of cost escalation shall be met from the
    programme fund provided by the Ministry of Rural Development, GoI*
    *( Modified vide MoRD Circular No. P-17017/1/2010-RC Circular No. 12/2011)
    (v) Time period provided in the Notice Inviting Tender (NIT) and the Work
    Programme shall be strictly enforced. Since time is the essence of the
    contract, action must be taken against the contractor in cases of delay, as per
    the contract provisions.
    13.2 With the above schedule and considering 75 days as the average tendering
    time, all cleared works should be able to be reported as completed at the end of
    15th month from clearance by the Ministry. The eligibility for release of second
    Programme Guidelines
    installment of a subsequent years’ cleared works will be determined accordingly
    (refer to Para 19).
    13.3 An important principle of the Pradhan Mantri Gram Sadak Yojana is the
    assured availability of funds, so as to facilitate timely completion of road works. It shall
    be the responsibility of the Executing Agencies to ensure timely payments to the
    contractors, subject to satisfactory execution of work. Delays in payment due should
    be avoided. Settlement of final bill with the contractor will be one of the parameters
    for monitoring the successful execution of works.
    13.4 To maintain quality, ensure timely completion of works and encourage rural
    road network maintenance, the Ministry of Rural Development may lay down
    schemes of incentives / disincentives for the States.
    14.1 The Ministry of Rural Development have set up the National Rural Roads
    Development Agency (NRRDA) to provide Operational and Management support
    to the Programme. The NRRDA will provide support, inter alia, on the following:
    (i) Designs & Specifications and Cost norms.
    (ii) Technical Agencies
    (iii) District Rural Roads Plans and Core Network.
    (iv) Scrutiny of Project Proposals
    (v) Quality Monitoring
    (vi) Monitoring of progress, including online monitoring
    (vii) R&D
    Pradhan Mantri Gram Sadak Yojana
    (viii) Human Resource Development
    (ix) Communication
    14.2 All State Governments will ensure timely furnishing of all necessary reports, data
    and information to the National Rural Roads Development Agency.
    15.1 Ensuring the quality of the road works is the responsibility of the State
    Governments, who are implementing the Programme. To this end, all works will be
    effectively supervised. The NRRDA will issue general guidelines on Quality Control
    and prescribe a Quality Control Handbook to regulate the quality control process
    at works level. 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
    32 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. The Standard Bidding Document
    (see Para 11.1) shall incorporate suitable clauses for ensuring Quality Control and
    a Performance Guarantee by the Contractor, which should be discharged only
    after consulting the Panchayati Raj Institutions responsible for maintenance.
    15.2 A three-tier Quality Control mechanism is envisaged under the Pradhan
    Mantri Gram Sadak Yojana. The State Governments would be responsible for the first
    two tiers of the Quality Control Structure. The PIU will be the first tier, whose primary
    responsibility will be to ensure that all the materials utilised and the workmanship
    conform to the prescribed specifications. As the first tier, the PIU 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/
    15.3 As the Second tier of the Quality Control structure, periodic inspections
    Programme Guidelines
    of works will be carried out by Quality Control Units, set up / engaged by the State
    Government, independent of the Executive Engineers / PIUs. These officers / Agencies
    (who may be called State Quality Monitors) would be expected to carry out regular
    inspections and also get samples of material used tested in laboratories of the State
    Government as well as, in certain cases, independent laboratories, say those of the
    State Technical Agencies. The State Governments will issue the requisite guidelines
    in this regard.
    15.4 Each State Government will appoint a senior Engineer (not below the rank of
    Superintending Engineer) to function as State Quality Coordinator (SQC) at the
    State level. His function will be to oversee the satisfactory functioning of the Quality
    control mechanism within the State. This function would also involve overseeing the
    follow up action on the reports of the National Quality Monitors. The Quality
    Coordinator should be part of the SRRDA. State Quality Coordinators should be appointed keeping in view the following:- (i) He/ She should be graduate Civil Engineer not below the rank of 33 Superintending Engineer (ii) He / She must possess field experience of working for construction of roads for at least five years in last ten years. Also in the last five years he / she should have worked for at least two years in the field of construction / maintenance of road works. (Substituted vide letter No. Q-17024/1/2005-P-III QM January 27, 2005)
    15.5 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. These persons may be designated as National Quality
    Monitors (NQMs). It will be the responsibility of the PIU to facilitate the inspection of
    works by the NQM, who shall be given free access to all administrative, technical
    and financial records.
    Pradhan Mantri Gram Sadak Yojana
    15.6 The National Quality Monitors shall inspect the road works with particular
    reference to Quality. They may take samples from the site and get them examined
    by any competent Technical Agency / Institution. They shall also report on the
    general functioning of the Quality Control mechanism in the District. The Monitors
    shall submit their report to the NRRDA. The reports of the NQMs will be sent by
    NRRDA to the State Quality Coordinator for appropriate action within a period
    to be specified. 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. In respect of
    NQM Reports, the SQC shall, each month, report on the action taken on each of
    the pending Reports. All works rated ‘unsatisfactory’ shall be re-inspected by an
    SQM or NQM after a rectification report has been received from the State Quality
    15.7 Recurrent adverse reports about quality of road works in a given District
    / State might entail suspension of the Programme in that area till the underlying
    34 causes of defective work have been addressed.
    15.8 The State Quality Coordinator/ Head of PIU shall be the authority to
    receive and inquire into complaints/representations in respect of quality of works
    and they would be responsible for sending a reply, after proper investigation, to
    the complainant within 30 days. The SRRDA, for this purpose, shall ensure the
    (i) The name, address and other details of the State Quality Coordinator will
    be given adequate publicity in the State (including tender notices, websites,
    etc.) as the authority empowered to receive complaints.
    (ii) The State Quality Coordinator shall register all complaints and will get them
    enquired into by the PIU or if circumstances so require, by deputing a State
    Quality Monitor.
    (iii) All complaints shall be acknowledged on receipt (giving registration no.) and
    Programme Guidelines
    likely date of reply shall be indicated. On receipt of the report, the complainant shall
    be informed of the outcome and the action taken / proposed.
    (iv) Action on anonymous/ pseudonymous complaints will be taken as per
    extant instructions of the State Government.
    (v) Complaints received through the Ministry of Rural Development / NRRDA will
    normally be sent to the State Quality Coordinator for enquiry and necessary
    action. In case report from an SQM is desired, this shall be furnished within
    the time specified. In case an adequate response is not received within
    the stated time schedule, the NRRDA may depute an NQM and further
    processing will be done only on the basis of NQM report.
    (vi) The SQC shall make a monthly report to the State Nodal Department / State
    Rural Roads Agency (in a prescribed format) and the status of action on
    complaints shall be discussed in the State-level Standing Committee.
    The NRRDA shall monitor the working of the mechanism.
    15.9 Quality Control expenses of the 2nd tier will be borne by the PMGSY in respect
    of identified independent Monitors/monitoring agencies and for expenses
    and testing fee etc., admissible as per PMGSY monitoring Guidelines. An
    amount upto 0.50% of the cleared project cost shall be released to the
    SRRDA for the purpose, as a proportion of the programme fund released.
    The funds shall be credited to the Administrative Fund Account of the
    SRRDA (see Para 12.2).
    15.10.1 The Superintending Engineer concerned of the zone/region will request
    the 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 the MP/Zilla Pramukh.
    15.10.2 The Executive Engineer in-charge of a division will request the MLA/
    Pradhan Mantri Gram Sadak Yojana
    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.
    15.10.3 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.
    (#Added by D.O.No.P-17025/24/2007/RC June 27, 2007)
    15.11 In sum, the PIU as the first level of quality control is directly responsible for
    quality management ,i.e ensuring that at all times the contractor is delivering
    quality in materials and workmanship in accordance with the specifications
    of the DPR and conditions of the contract. The second level of quality control,
    of SQMs under the SQC are responsible for Quality control i.e ensuring that
    36 the contractor and the PIUs are working to achieve quality standards as per
    the prescribed standards. The third level of quality control is in reality a
    quality assurance mechanism. The NQMs are expected to randomly
    inspect works to ensure that the State Quality control systems are working
    satisfactorily and will deliver the requisite quality. The three sub-systems are
    thus not interchangeable , and need to work in tandem .
    16.1 Effective monitoring of the Programme being critical, the State Governments
    will ensure that the officials are prompt in sending the requisite reports / information
    to the SRRDA as well as the NRRDA. The On-line Management, Monitoring
    and Accounting System (OMMAS), developed for the purpose will be the chief
    mechanism for monitoring the Programme. To this end, the officials are required to
    furnish, ‘On-line’, all the data and information, as may be prescribed by the NRRDA
    from time to time, in the relevant module of the OMMAS . They shall be responsible
    for uninterrupted maintenance of the Computer Hardware and Software as well as
    Programme Guidelines
    the Internet connectivity. The Software for the OMMAS developed by the NRRDA
    shall not be modified at any level in the States; any requirement or suggestion for
    change shall be intimated to the NRRDA.
    16.2 The State Government should provide necessary manpower, space and
    facilities to set up the Computer Hardware at the District and State Level. Since the data
    would reside on the State Servers, the State level Agency must ensure that the State
    Server is functional all 24 hours.
    16.3 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. Principal Secretary / Secretary InCharge of PMGSY shall also ensure regular updating of data on OMMAS. In case
    of continued failure to update data on the OMMAS, further releases to the State / 37
    District concerned would be adversely affected.
    16.4 Each State Government would identify one officer of sufficient seniority
    and having adequate knowledge of Information Technology to function as State IT
    Nodal Officer. His function will be to oversee the regularity and accuracy of the
    data being furnished by the Districts. The IT Nodal Officer, who shall form part of
    the SRRDA, shall also be responsible to oversee the upkeep of the Hardware and
    Software as well as the computer training requirements of the personnel dealing
    with the PMGSY.
    16.5 The District Vigilance & Monitoring Committee set up by the Ministry will also
    monitor the progress and exercise vigilance in respect of PMGSY.
    17.1 PMGSY is a huge central investment in the State sector as part of a poverty
    Pradhan Mantri Gram Sadak Yojana
    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 offfarm, are to be taken by the rural entrepreneur. Accordingly, the putting in place of
    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 will take steps to build up capacity in the District Panchayats
    and shall endeavour to devolve the funds and functionaries onto these Panchayats
    in order to be able to manage maintenance contracts for rural roads.
    17.2 All PMGSY roads (including associated Main Rural Links / Through Routes
    of PMGSY link routes) will be covered by 5-year maintenance contracts, (see
    Para 8.6) to be entered into along with the construction contract, with the same
    contractor, as per the Standard Bidding Document. Maintenance funds to service
    38 the contract will be budgeted by the State Government and placed at the disposal
    of the SRRDA in a separate Maintenance Fund Account within the stipulated
    time i.e. 50% by 31st May and remaining 50% by 30th November of each financial
    year §
    §Substituted vide letter No. H-12014/1/2010-RC dated 09/9/2010)
    17.3 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 as per Para 6.6.2) on expiry of 5-year
    post-construction maintenance (see Para 8.6 and 17.2) shall be placed under Zonal
    maintenance contracts consisting of 5-year maintenance including renewal as per
    cycle. 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 Fund Account.
    Programme Guidelines
    17.4 Till such time as District Panchayats take over maintenance functions, the
    PIUs will continue to be responsible for administration of post-construction and
    zonal maintenance contracts on PMGSY roads.
    17.5 State Governments shall endeavour to develop sustainable sources of
    funding for maintenance of rural roads and shall ensure that the SRRDA
    (a) Prepares and submits to the State Nodal Department and NRRDA an annual
    estimate of funds for proper maintenance of the Rural Core Network
    (b) Enforces a prioritization criterion for allocation of budgeted maintenance
    funds. The criteria may be developed in consultation with NRRDA, based
    on the Pavement Condition Index (PCI), giving weightage to conditions like
    traffic / population.
    (c) Liaises with the executing agencies receiving maintenance funding for rural
    roads to ensure coordinated application of the prioritization criteria. 39
    17.6 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.
    At the Central level, these issues will be addressed through coordination with the
    Road Safety Mission of the Ministry of Road Transport & Highways. At the State
    level, the State Quality Coordinator at State level and the Head of the DPIU at
    District level shall be tasked by the State Governments to coordinate with the State
    Governments road safety mechanisms and programmes, in particular through
    membership of the State Road Safety Council and District Road Safety Committees
    respectively created as per provision of Section 215 of the Motor Vehicles Act,
    1988 (Act No.59 of 1988).
    17.7 As part of the rural road development and maintenance programmes, the
    State Government shall ensure road safety audit of PMGSY works along with
    quality monitoring. It shall also ensure adequate involvement of Panchayat Raj
    Pradhan Mantri Gram Sadak Yojana
    Institutions in road safety awareness programmes. Awareness raising activities
    including publication of pamphlets, audio-visuals, interactive programmes etc. will be
    funded on the basis of annual proposals to be forwarded for clearance of the
    Empowered Committee along with the road proposals.
    18.1 The SRRDA shall select a Bank branch with internet connectivity at the State
    Headquarters, of any Public Sector Bank or Institution based Bank for maintaining
    the Programme Fund Account, Administrative Fund Account and Maintenance
    Fund Account under the Pradhan Mantri Gram Sadak Yojana. Once selected, the
    Account shall not be changed to any other Branch or Bank without concurrence
    of the Ministry of Rural Development. There will be a written undertaking from the
    Bank that it will follow the Guidelines of Government of India for payments from
    40 the PMGSY Funds. The concerned branch will maintain Internet connectivity and
    enter the data into the relevant module of OMMAS.
    18.2 The SRRDA will communicate to the NRRDA and to the Ministry the details
    of the Bank branch and the Account numbers. The Ministry of Rural Development
    shall release the programme funds and the administrative and travel expenses
    and quality control funds respectively into the Programme and Administrative Fund
    18.3 The State Government shall credit the Administrative Fund Account with
    funds for the proper functioning of the SRRDA. Funds for administration of
    maintenance contracts of PMGSY roads shall be credited to the Maintenance Fund
    Account of the SRRDA. The State Government shall credit the Programme Fund
    Account with funds in order to meet works related expenses not found eligible to
    be funded by the Ministry under the PMGSY, and to meet cost escalation, tender
    premium and other programme expenses which are the responsibility of the State
    Programme Guidelines
    18.4 The Programme, Administrative and Maintenance expenditure will be
    regulated as follows:
    (i) As indicated in Para 12.1 above, the Executive Engineers of PIUs / Heads
    of PIUs (who are the drawing and disbursing officers of the PIU) will be
    declared as the ex-officio members / officers of the SRRDA, so as to enable
    them to draw on the funds of the SRRDA from the three Accounts. They shall
    be the Authorised Signatories for issuing cheques. The PIUs shall not open
    separate bank accounts.
    (ii) The SRRDA shall nominate one of its senior officers, generally of the rank
    of a Chief Engineer, as the Empowered Officer. It shall be open only to the
    Empowered Officer to inform the Bank of the names of Authorised
    Signatories, for issuing cheques on the Agency’s bank accounts.
    (iii) The Empowered Officer will furnish this list of Authorised Signatories
    (Executive Engineers of Districts / Heads of PIUs) to the Bank, periodically 41
    verify it to ensure its accuracy and inform the Bank of any changes. The Bank will
    issue separate Cheque Books to each of the Authorised Signatories, and will
    keep their signatures on record.
    (iv) The Empowered Officer will also inform the Bank of the names of Authorised
    Payees (contractors and suppliers with whom Agreements have been duly
    entered into, as well as Statutory Authorities, such as ITO etc.) and their
    designated payee accounts, and also the amounts that are admissible
    against each of the contractors and suppliers in respect of each account.
    This will be in conformity with the Work Agreements. The Empowered
    Officer may lay down suitable limits on monthly / quarterly payments in line
    with the agreed Works Programme for the respective packages. Standing
    instructions will be issued to the Bank Branches by the Empowered Officer
    in this regard.
    (v) The Authorised Signatories will make payments, as per the established
    Pradhan Mantri Gram Sadak Yojana
    procedure, by Account Payee cheque mentioning the designated payee
    accounts. They will immediately enter the cheque and payee details in the
    Payment Module of the OMMAS.
    (vi) On presentation of the cheque, the Bank would satisfy itself that the
    payment details have been entered in the Payment Module, and that the
    cheque meets with all other requirements, including, signatures agreeing
    with specimen signatures, the cheque amount being within the balance
    authorised limit, and the payee being the authorised payee, payee account
    details being fully and correctly specified etc.
    (vii) The Bank will not allow the funds to be used by any person other than
    the authorised signatories and for any purpose other than the authorised
    payment for Works taken up under the PMGSY. Nor will it be open to the
    SRRDA to invest these funds in any other Bank / Branch, whether for short
    or medium term, including under Fixed Deposits.
    (viii) The Bank will render monthly account, in respect of PMGSY Funds, to the
    PIU, the State level Agency and whenever requested, to the National Rural
    Roads Development Agency.
    (ix) In addition to the existing system of bank authorization, State Rural Roads
    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 up
    to 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
    Programme Guidelines
    cash book.
    (Inserted vide MoRD letter No. P-12025/8/2001-RC dated 14th October, 2009)
    18.5 A tripartite Memorandum of Understanding will be entered into between
    the Bank, SRRDA and the NRRDA wherein the parties would agree to abide by
    the provisions of the Guidelines. In particular, the Bank will agree to abide by
    the instructions issued, from time to time, by the Ministry of Rural Development /
    National Rural Roads Development Agency (NRRDA) regarding the operation of
    the Accounts.
    18.6 The Ministry of Rural Development / NRRDA may, from time to time, issue
    such directives as necessary for smooth flow of funds and effectiveness of the
    18.7 The Accounting System, to be prescribed by the NRRDA, would be based
    on the well-established Public Works Accounting system, with its own Chart of
    Accounts and Balance Sheet. The OMMAS software would support the Accounting
    System and would be enabled so that PIUs, SRRDAs and Bank branch concerned
    can make data entry on line for their respective transaction.
    18.8 Money accruing as Interest credited in the Programme Fund Account will be
    credited to the same account. The expenditure out of this interest amount will be
    guided by the instructions / guidelines to be issued by the Ministry of Rural
    Development / NRRDA from time to time. The Bank shall intimate to the State level
    Agency the interest amount credited by it to the Account on quarterly basis
    19.1 The PMGSY has adopted a project approach where road works have to be
    completed within a stipulated time. The funds for the cleared projects will be made
    available to the SRRDA in two installments. The first instalment amounting to 50%
    Pradhan Mantri Gram Sadak Yojana
    of the cleared value of projects, (or annual allocation whichever is lower) shall be
    released subject to fulfillment of conditions, if any, stipulated earlier.
    19.2 Since the cost of only the contracted works have to be paid, the second
    instalment would be calculated on this basis, and would be equal to the balance
    due on the cost of the awarded works. Release would be subject to utilisation
    of 60% of the available funds and completion of at least 80% of the road works
    awarded in the year previous to the preceding year and 100% of the awarded
    works of all the years preceding that year, and fulfillment of other conditions, if any,
    stipulated while releasing the previous instalment. Works cleared and not awarded
    by the time of the 2nd instalment would be deemed as lapsed. Available funds will
    be the funds available with the SRRDA on 1st April of the Financial Year (including
    interest accrued) plus the amount of the instalment released, if any, during the
    Financial Year.
    19.3 The release of the second instalment in a year shall be subject to submission
    44 of the following documents:
    (i) Utilisation Certificate for the funds released earlier, year-wise in the form
    (ii) Certificate by the Bank Manager indicating the balance amount on date of
    issue of the Certificate and the interest credited.
    (iii) A Certificate regarding the requisite physical completion of works.
    (iv) For all releases after October of a year, production of an Audited Statement
    of Accounts and a Balance Sheet and related Statements, duly certified by
    the Chartered Accountant for the accounts of the previous financial year.
    (v) Outputs of the relevant modules of the OMMAS, duly certified by the SRRDA
    as being correct and verified by the NRRDA.
    Programme Guidelines
    (vi) A certificate from CEO of SRRDA that Maintenance funds required as per
    maintenance contracts in force had been spent during the previous financial
    year. For releases after May of an year, the certificate should also include
    that 50% of such maintenance fund requirements for the current Financial
    Year has been released by the State, whereas for releases after November
    the certificate should be for 100% of such funds §
    §Substituted vide letter No. H-12014/1/2010-RC dated 09/9/2010)
    19.4 For the purpose of releasing funds, the State would be taken as a Unit.
  8. AUDIT
    20.1 The SRRDA will ensure that the accounts are audited by a Chartered
    Accountant selected from a panel approved by the C&AG, within six months of
    the close of the financial year. This account will be supported by a statement
    of reconciliation with the accounts of PIUs and a certificate of the Chartered 45
    Accountant on its accuracy.
    20.2 In addition to the Audit by the Chartered Accountant, the works under this
    Programme would be subject to audit by the Office of the Comptroller and
    AuditorGeneral of India (C&AG). The Audit of the work done by the C&AG may
    cover aspects of quality, in addition to financial audit.
    20.3 Both the State level Agency and the PIUs must provide all relevant
    information to District level Vigilance and Monitoring Committees.
    21.1 The National Rural Roads Development Agency may, in co-operation with
    the State level Agency, organise suitable Training Programmes for the PIU
    personnel as well as Contractors engineers.
    Pradhan Mantri Gram Sadak Yojana
    21.2 Planting of fruit bearing and other suitable trees, on both sides of the roads
    would be taken up by the State Governments / Panchayats from their own funds or
    through convergence with other rural development programmes.
    21.3 The Ministry of Rural Development may, from time to time, issue such
    directions as may be necessary for smooth implementation of the Programme.
    22.1 Rural connectivity is not an end in itself. It is a means. It is expected that
    the connectivity will improve indicators of education, health, rural incomes etc.,
    provided as a follow up, and in consultation with the local Panchayati Raj
    Institutions, convergence is achieved with other ongoing Programmes in these
    sectors. It is expected that the District Panchayat will focus on these issues. Before the
    start of work on Rural Roads, the bench mark development indicators may be
    measured and attached to the detailed project report.
    22.2 The NRRDA will provide 100% assistance for independent Studies to
    establish the impact of the new rural connectivity in a District from time to time.

Programme Guidelines

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