Part I - Programme Objectives and Guiding Principles    
1. Introduction
2. Programme Objectives
3. Guiding Principles of PMGSY and Definitions
Part II – Planning, Funding, Execution and Maintenance of Rural Roads
4. Planning for Rural Roads
5. Funding and Allocation
6. Proposals
7. State Level Agencies
8. Preparation of Project Proposals and their Clearance
9. Scrutiny of Project Proposals
10. Empowered Committee
11. Tendering of Works
12. Programme Implementation Units
13. Execution of Works
14. National Rural Roads Development Agency
15. Quality Control and Supervision of Works
16. Monitoring
17. Maintenance of Rural Roads
Part III - Flow of funds, procedure for release and Audit
18. Flow of Funds
19. Procedure for Release Of Funds to the State Level Agency
20. Audit
21. Miscellaneous
22. Convergence

1. Introduction

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 any sustainable Poverty reduction Programme. Notwithstanding the efforts made, over the years, at the State and Central levels, through different Programmes, about 40% of the 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 be categorised as All-weather roads.

1.2 With a view to redressing the situation, Government have launched the Pradhan Mantri Gram Sadak Yojana on 25th December, 2000. 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.

2. Programme Objectives

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 unconnected Habitations in the rural areas, in such a way that Habitations with a population of 1000 persons and above are covered in three years (2000-2003) and all Unconnected Habitations with a population of 500 persons and above by the end of the Tenth Plan Period (2007). In respect of the Hill States (North-East, Sikkim, Himachal Pradesh, Jammu & Kashmir, Uttaranchal) and the Desert Areas (as identified in the Desert Development Programme) as well as the Tribal (Schedule V) areas, the objective would be to connect Habitations with a population of 250 persons and above.

2.2 The PMGSY will permit the Upgradation (to prescribed standards) of the existing roads in those Districts where all the 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 and cannot exceed 20% of the State’s allocation where Unconnected Habitations in the State still exist. In Upgradation works, priority should be given to conversion of fair weather roads to all weather roads in the Core Network.

3. Guiding Principles of PMGSY and Definitions

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 unconnected Habitations. It must be ensured that provision of New Connectivity (i.e., connecting unconnected Habitations) should be given precedence in keeping with the objectives of the Programme.

3.2 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 and the District Rural Roads Plans and Core Networks shall be drawn up / revised on this basis.

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 metres or more (1.5 km of path distance in case of Hills) from an All-weather road or a connected Habitation.

3.4 The Unconnected Habitations are to be connected to nearby Habitations already connected by an All-weather road or to another existing All-weather road so that services (educational, health, marketing facilities etc.), which are not available in the unconnected Habitation, become available to the residents.

3.5 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 which does not change over time. Desam, Dhanis, Tolas, Majras, hamlets etc. are commonly used terminology to describe the Habitations. A Revenue village / Gram Panchayat may comprise of one or several Habitations. The population of all Habitations within a radius of 500 metres (1.5 km. of path distance in case of Hills) may be clubbed together for the purpose of determining the population size. This cluster approach would enable provision of connectivity to a larger number of Habitations, particularly in the Hill/mountainous areas.

3.6 A Core Network is that minimal Network of roads (routes)that is essential to provide Basic access to essential social economic services to all eligible 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 Habitations and lead it to Marketing centres either directly or through the higher category roads i.e., the District Roads or the State or National Highway. Link Routes 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+/500+ Habitations by 2003 and 500/250+ Habitations by 2007), 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 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 Habitation 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 works.

3.10 The PMGSY envisages only single road Connectivity to be provided. If a Habitation is already connected to another connected Habitation by way of an All-weather road, then no further work can be taken up under the PMGSY at that habitation.

3.11 Provision of connectivity to unconnected Habitations would be termed as New Connectivity. New Connectivity implies construction of roads from the earth work stage to the desired specifications, and would therefore invariably involve some earth work. In case of Hills, it would involve Formation and Cutting. However, existing Gravel or WBM roads will not qualify to be treated as works of New Connectivity even where they involve some earth work by way of widening of the Carriageway or Road formation. Work on a road which only has earthwork (and not a Gravel Road) will be treated as a case of New Connectivity.

3.12 Upgradation, when permitted (refer Para 2.2 above) would typically involve conversion from Gravel or Water Bound Macadam (WBM) stage to the desired technical specifications or widening of the roads, subject to traffic studies. Provision of Cross Drainage (CD) works alone would also be treated as Upgradation under PMGSY. A Gravel Road is a road constructed using well compacted crushed rock or gravel material, which is fairly resilient and does not become slippery when wet. Water Bound Macadam is the road layer made of crushed or broken aggregate mechanically interlocked by rolling and the voids filled with screening and binding material with the assistance of water.

3.13 The primary focus of the PMGSY is to provide All-weather road connectivity to the unconnected Habitations. An All-weather road is one which is negotiable during all weathers. This implies that the road-bed is drained effectively by adequate cross-drainage structures such as culverts, minor bridges and causeways. Interruptions to traffic as per permitted frequency and duration are, however, allowed. The pavement should be negotiable during all-weathers, but this does not necessarily imply that it should be paved or surfaced or black-topped.

3.14 There may be roads which are treated as 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 will be treated as Upgradation. Provision of only CD works would also be treated as Upgradation. However, it must be noted that on all the road works of the PMGSY, provision of necessary CD works is considered an essential element.

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 must meet the technical specifications. The specifications laid down by the Indian Roads Congress (IRC) as given in the Rural Roads Manual (IRC:SP20:2002) will be followed.

Part II – Planning, Funding, Execution and Maintenance of Rural Roads

4. Planning for Rural Roads

4.1 Proper planning is imperative to achieve the objectives of the Programme within the stipulated time and costs. 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 Core Network, the priorities of elected representatives, including MPs and MLAs, are expected to be duly taken into account and given full consideration. The Core Network would constitute the basis for preparation of project proposals under the PMGSY.

4.2 The District Rural Roads Plan would indicate the existing road network system in the District and also clearly identify the proposed roads for providing connectivity to 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 all-weather 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 Connectivity under the PMGSY.

4.3 In preparing the District Rural Roads Plan, it would be first necessary to indicate the weightage for various services. The District Panchayat shall be the competent authority to select the set of socio-economic / infrastructure variables best suited for the District, categorise 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 Habitation is within 500 metres (1.5 km of Path length in the Hills) of a connected Habitation or an All-weather road. 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 selection.

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, alongwith 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 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. Funding and Allocation

5.1 Once the Core Network is prepared, 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 80% on the basis of road length required for providing connectivity to Unconnected Habitations and 20% on the basis of road length requiring Upgradation under the PMGSY. The District-wise allocation of funds would also be communicated to the Ministry/NRRDA every year by the State Government.

5.2 In making the District-wise allocation, the number of Habitations taken up under the PMGSY or any other Programme would be excluded from the total number of Unconnected Habitations (even if the road works are still under execution). The figures of connected as well as Unconnected Habitations in any District would keep on changing every year till such time as all Unconnected Habitations (of the stipulated population size) have been covered in the District.

6. Proposals

6.1 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 by the State Government (see Para 5.1). District Panchayat shall finalise the list through a consultative process involving lower level Panchayati institutions and elected representatives (see Para 6.5 below) It must be ensured that the proposed road works are part of the Core Network and that New Connectivity is given primacy, as indicated in Para 3.1 above.

6.2 It will be the responsibility of the State Government/District Panchayat to oversee 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. However, the State Governments will draw up policies so that the process of making land available for the road works sub-serves the common good and is also just and equitable.

6.3 In drawing up the list of the road works, the District Panchayat shall ensure that primacy is accorded to providing New Connectivity to all Unconnected Habitations. The following Order of Priority shall be strictly followed.


Providing New connectivity to Unconnected Habitations with a population of 1000 + (500 + in case of Hill States etc)


Providing New connectivity to Unconnected Habitations with a population of 500-999 (250-499 in case of Hill States etc)


Upgradation of Through Routes in the Core network (only Rural Roads to be covered)


Upgradation of Link Routes

6.4 The only exception from the above order of priority is in respect of those routes that include the Village Panchayat Headquarters or Market Centres or other educational or medical essential services or those which are notified as places of tourist interest. In such cases, provision of new connectivity may be made irrespective of the population size.

6.5 Under the PMGSY, the proposals of the Members of Parliament are required to be given full consideration. The list of Unconnected Habitations (along with the population) in each District along with the list of roads identified to connect them as part of the Core Network should be sent to the Members of Parliament, to facilitate the MPs in making their suggestions. It will be incumbent upon the District Panchayat to ensure that, while framing the proposals, full consideration is given to the proposals received from the Members of Parliament, within the framework of the Guidelines. For this purpose, the proposals listed by the Members of Parliament on the PMGSY website ( would also be taken into consideration.

7.State Level Agencies

7.1 Each State Government / UT Administration 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 manpower. No Agency/Consultant shall be created by the States for implementation of the programmes. 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, which should have an officer of the rank of Executive Engineer as its head.

7.2 Every State Government / UT Administration shall nominate a Department as the Nodal Department, who will have the overall responsibility for implementation of the PMGSY in the State. This would be the Administrative Department responsible for the Executing Agency entrusted with the execution of the road works. In the event of there being two Executing Agencies, the Department responsible for the major of the two Agencies shall be the Nodal Department. All communication between the Ministry of Rural Development and the State Government would be with and through the Nodal Department / State-level Agency.

7.3 The Nodal Department will identify a State-level autonomous Agency (Society etc), with a distinct legal status, under its control for receiving the funds from the Ministry 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 Agency will be headed by the Minister or the Chief Secretary and 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 before the State-level Standing Committee and are sent to the NRRDA for clearance by the Ministry of Rural Development.

7.4 Each State Government shall set up a State-level Standing Committee (preferably headed by the Chief Secretary) to vet the Core Networks and the Project proposals to ensure that they have been formulated in accordance with the Guidelines. The State Level Standing Committee would also be responsible for close and effective monitoring of the Programme, and oversee the timely and proper execution of road works.

8.Preparation of Project Proposals and their Clearance

8.1 After approval by the District Panchayat (refer Para 6.1 above), the proposals would be forwarded through the District PIU to the State-level Agency (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.

8.2 The State-level Agency shall vet the proposals to ensure that they are in accordance with the Guidelines and shall place them before the State-level Standing Committee. The size of State project proposals as well as the time when they would be forwarded to the NRRDA will be as specified by the Ministry / NRRDA each year.

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. The preparation of DPR requires collection and analysis of data required for the design of Pavement and Cross-Drainage works such as Inventory and Engineering surveys, Soil investigations, Hydraulic data etc. The cost of preparation of DPR @ not more than Rs. 10000 per kilometre may be included in the Project Cost. Similarly, a fixed amount of not more than Rs. 10000 per kilometre (on actual basis) may be included in the Project Cost as cost for fixation of Sign Boards, Road Stones and other Road Furniture as per IRC specifications. Rupees 5000/- per function for foundation/inauguration ceremonies may also be included. Attached to the DPR will be a separate Benchmark indicator report giving status of key indicators of education, health, incomes etc. of each of the Habitations proposed to be connected (Data from Habitation Data in Format-I developed for the District Rural Roads Plans/ Census may be used).

8.4 The PIU will follow the following Guidelines in preparing the Detailed Project reports:

  1. 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 (Publication IRC:SP20:2002). Most of the new connectivity is likely to carry traffic of low intensity. It may be noted that the Rural Roads Manual allows for a carriageway of 3.0m where traffic intensity is less than 100 motorised vehicles per day and where the traffic is not likely to increase due to situation, like, dead end, low Habitation and difficult terrain condition. To ensure economy in respect of link roads, the carriageway width may be restricted to 3.0m in all such cases with corresponding reduction in roadway width etc. as per the Rural Roads Manual.

  2. The Rural Roads under the Pradhan Mantri Gram Sadak Yojana will be surface roads, and, by and large, sealed surface roads. i.e., roads with a bituminous or cement concrete surfacing. The choice of surface would be determined, inter alia, by factors like traffic density, soil type and rainfall, following the technical specifications laid down in the Rural Roads Manual (IRC:SP20:2002).

  3. Where the road work is passing through a Habitation, the road in the Built-up area and for 50 metres on either side may be so designed that it is not damaged by water. For this the roads will be designed and executed as a Cement Road or with Paved Stones, besides providing side drains. Appropriate side drains will also be provided, so that improper drainage does not damage the road.

  4. The Rural Roads Manual speaks of the advantages of using Modified Bitumen in place of ordinary Bitumen. Where State Governments have taken a decision to use Modified Bitumen [including Rubber Modified Bitumen (RMB)] in any of their Programmes, such use shall be extended also to the PMGSY roads. The use of Modified Bitumen (including RMB) would be restricted to Surface Course only (wearing course). Care should be taken to ensure strict Quality Control, in accordance with the provisions of IRC Code – IRC53:2002. Special care is to be taken for quality control by measures such as procuring Bitumen from the refineries, procurement in bulk and rigorous testing for quality while applying the Bitumen. All the tests prescribed in the Rural Roads Manual or by IRC:SP20:2002 or IRC53:2002 shall be followed.

  5. Wherever locally available material, including products like Fly Ash are available, they should be prescribed subject to adherence to technical norms.

  6. The Rural Roads constructed under PMGSY must have proper drainage facilities As regards the Cross-Drainage works under the Programme, normally only minor bridges i.e. those having a length of upto 15 metre would be taken up. Longer bridges would also be admissible under the Programme but only after inspection by an officer of the rank of Superintending Engineer or above in case of bridges between 15-25 metres and by a joint team of the State Technical Agency and senior Engineers , who shall confirm the need as well as design of the proposed structure. Due consideration needs to be paid to the cost and benefits accruing from the bridge. Similarly, in case of the Hill States, the length of CD works could be longer but the cost of one CD work should not normally exceed Rs. 25 lakh. The bridges may be so designed as to serve, where feasible, as Bridge-cum-Bandharas. However, in such cases, prior commitment of the beneficiary group / village Panchayat regarding its operation and maintenance should be obtained.

9.Scrutiny of Project Proposals

9.1 Ministry of Rural Development has identified in consultation with each State Government, reputed Technical Institutions to scrutinise the project proposals prepared by the State Governments, provide requisite technical support to the State Governments, and undertake Quality Control tests upon specific request. These are being referred to as the State Technical Agencies (STA). The coordination of activities of the STAs would be performed by the NRRDA, who may add to or delete from the list of institutions, as well as to entrust specific tasks from time to time. The Ministry of Rural Development/ 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.

9.2 The PIU will forward the proposals alongwith the Detailed Project Reports to the State Technical Agencies for scrutiny of the design and estimates. The Proformae F-1 to F-8 will form part of the DPR. These will be forwarded at the level of the Superintending Engineer or the supervising officer of the PIU, before they are sent to the State Technical Agencies. A summary of the road works will be prepared in Proforma-‘B’, circulated by the Ministry / NRRDA.

9.3 The DPRs are to be scrutinised by the State Technical Agency (STA) in the light of the PMGSY Guidelines, IRC specifications as contained in the Rural Roads Manual / IRC SP20:2002 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). The STA will countersign the Proformae, whereupon the PIU will forward the same to the State-level Agency.

9.4 The State-level Agency will consolidate the proposals from each PIU, after verifying that they have been duly scrutinised by the respective STAs. They will then prepare the State Abstract and send all the Project proposals to the NRRDA alongwith the proformae MP-I and MP-II of each District as well as the proformae.

9.5 The NRRDA will thereupon scrutinise the proposals from the State Level Agency 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. Empowered Committee

10.1 At the Central level, the Project proposals received from the State Governments would be considered by an Empowered Committee, to be chaired by Secretary, Department of Rural Development. The representatives of the State Government, whose projects are being considered by the Empowered Committee, may be invited to attend the Meetings, as and when required. The Recommendations of the Empowered Committee would, thereafter, be submitted to the Minister of Rural Development for clearance.

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 well established procedures of the Executing Agency / ies in this regard would continue to be followed.

10.3 Once approved, the alignment of the road should not be changed without obtaining the concurrence of the District Panchayat, the State Technical Agency and the State level Standing Committee.

11.Tendering of Works

11.1 After the project proposals have been cleared by the Ministry, the Executing Agency would invite tenders and commence work on the projects. 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. The States will follow the Standard Bidding Document, prescribed by the Ministry of Rural Development, for all the tenders.

11.2 All State level formalities relating to issue of tender notice, finalisation of tender and award of works should be completed within 120 days of clearance of the project proposals failing which it will be deemed that the works in question have been cancelled. A report on the circumstances in which the work could not be awarded must be sent to the National Rural Roads Development Agency (NRRDA). The State Government would also stand to lose that amount.

11.3 In case the value of tenders received is above the estimate that has been cleared by the Ministry, the difference (tender premium) will be borne by the State Government.

12.Programme Implementation Units

12.1 At the District level, the Programme will be co-ordinated, and implemented through the Executing Agencies. While, for all the Districts, it is desirable that a dedicated Programme Implementation Unit (PIU) is set up, this is especially desirable for all States having an annual Allocation of Rs. 75 crore or more per annum under the PMGSY, and all the participating States in the externally aided projects. The Programme Implementation Unit at the District Level may typically be headed by an Engineer not below the rank of Executive Engineer. All PIUs will be manned by competent technical personnel from amongst the available staff or through deputationists. No new posts will be created for the purpose. In other States, the PMGSY works will be executed by the Executive Engineers. The Executive Engineer as well as the heads of PIU (as the case may be) will be designated as officers of the State Level Agency, so as to enable them to operate on the funds of the Agency.

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.

12.3 No Agency charges will be admissible for road works taken up under this Programme. The Executing Agencies will not levy charges in any form, such as Centage charges etc. Expenditure on foundation and inauguration ceremonies to be done by MPs, upto Rs. 5,000 per function, may however be charged to the project.

13. Execution of Works

13.1 The relevant projects would be executed by the PIUs and completed within a period of 6 months, from the date of issue of the Work order. Delayed execution of projects, could adversely affect clearance of the proposals in subsequent years. PMGSY does not provide for any cost over-runs.

13.2 Except for Hill States, the Road works under the PMGSY shall not be taken up in stages. Once road works are taken up, they should be completed to the requisite Technical Specifications in the prescribed time-frame.

13.3 In case of the Hill States (North-East (except Assam), Sikkim, Himachal Pradesh, Jammu & Kashmir, Uttaranchal) and the Andaman & Nicobar Islands, however, two working seasons- about 18 months – may be allowed to the Executing Agency to complete the projects cleared by the Ministry of Rural Development under the Programme. This is to enable the formation to stabilise during one season, followed by Metalling and surfacing in the subsequent working season.

13.4 Any cost over-run, either due to time over-run or for any other reason whatsoever, would have to be borne by the State Government. To avoid such a contingency, the Executing Agency will incorporate suitable Penalty Clauses, as indicated in the Standard Bidding Document.

13.5 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.

13.6 To maintain quality and to ensure timely completion of works, the Ministry of Rural Development may lay down a scheme of incentives/disincentives to the States.

14. National Rural Roads Development Agency

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:

  1. Designs & Specifications and Cost norms.
  2. Principal Technical agencies (PTAs) and State Technical Agencies (STAs)
  3. District Rural Roads Plans and Core Network.
  4. Scrutiny of Project Proposals
    1. National Quality Monitors
    2. Monitoring of progress of the PMGSY
  5. On-Line Management & Monitoring System
  6. Training, Workshops, Research, Pilot Projects and Literature.
  7. Human Resource Development

14.2 In respect of the Pradhan Mantri Gram Sadak Yojana, all State Governments / UT Administrations will ensure timely furnishing of all necessary reports, data and information to the National Rural Roads Development Agency.

15. Quality Control and Supervision of Works

15.1 Ensuring the quality of the road works shall be the responsibility of the State Governments/ Union Territory Administrations, who are implementing the Programme. To this end, all works will be effectively supervised. The Quality Control Register prescribed by the NRRDA shall invariably be maintained for each of the road works. Payment shall not be made to the Contractor unless the tests have been found to be successful. The record of tests shall be computerised on the format prescribed by the NRRDA.

15.2 The roads constructed under this Programme are expected to be of very high standard, requiring no major repairs for at least five (5) years after completion of construction. In order to realise this objective, suitable clauses relating to Performance Guarantee/routine maintenance shall be included in the Contract Documents, as per the provisions in the Standard Bidding Document. In particular, the State Government shall obtain a Bank Guarantee from the Contractor for 10% of the value of the work, which should remain valid for the 5 year period and should be discharged only after consulting the Panchayati Raj Institution responsible for maintenance (See Para 17.1).

15.3 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, and would also bear the cost of the two tiers at the District and the State level. The PIU or the Executive Engineer will be the first tier, whose prime responsibility will be to ensure that that the all the materials utilised and the workmanship conform to the prescribed specifications. They shall also ensure that all the tests prescribed by the National Rural Road Development Agency, are carried out at the specified time and place by the specified person/ authority.

15.4 As the Second-tier of the Quality Control Structure, periodic inspections 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 would be expected to carry out random tests 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.

15.5 It shall be mandatory to record, in the relevant module of the On-line Management & Monitoring System (OMMS) , all the test results carried out by the two-tiers indicated above.

15.6 Each State government / UT Administration will appoint a senior Engineer (not below the rank of Superintending Engineer) to function as State Quality Coordinator at the State level. His / her function will be to oversee the satisfactory functioning of Quality control mechanism within the State / UT. 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 State level Agency.

15.7 As the 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 are designated as National Quality Monitors (NQM). 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 records, administrative, technical and financial.

15.8 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 functioning of the Quality Control mechanism in the District. The Monitors shall submit their report to the NRRDA, through the medium of the On-line Management & Monitoring System. The reports of the NQMs will be sent by NRRDA to the State Government for appropriate action within period to be specified. In respect of works-in-progress, in case quality check reveals ‘Poor’ or ‘Average’ work, the State Government 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 State Government shall, each month, report on the action taken on each of the Reports pending with the State Government. All works rated ‘Poor’ and ‘Average’ during work-in-progress shall be re-inspected by an NQM after a rectification report has been received from the State Government.

15.9 The State Governments / UT Administrations shall put in place systems to identify and take appropriate action (including blacklisting in serious cases) against the Contractors and the Field Engineers who are found negligent in ensuring the quality of road works. Where the completed work of a Contractor is found to be ‘Poor’ or ‘Average’, the Contractor concerned shall be blacklisted by the State and no PMGSY works are to be given to such Contractor in future. States/ UTs should also consider blacklisting such Contractors for works under other State Government programmes. The State Governments / UT Administrations shall ensure that all the PMGSY road works qualify to be rated at least as ‘Good’ during implementation and ‘Very Good’ when completed.

15.10 The On-line Management & Monitoring System has a provision by which a ‘Red Pole’ would appear against a work if any of the tests on that road work are unsuccessful. Similarly where the NQM finds that the quality of the Work is ‘Poor’ or ‘Average’, a Red Flag appears against the work. In case of a Red Pole, the payment shall not be made unless the work is rectified and the tests are successful. In case of a Red Flag, the payment shall not be made unless the Superintending Engineer (Supervisory Engineer to the PIU in case of PIUs) inspects the work and is satisfied that all the defects have been rectified.

15.11 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 causes of defective work have been addressed.

15.12 The State Quality Coordinator/ Head of PIU shall be the authority to 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 State Level Agency shall monitor the disposal of complaints and the NRRDA shall liaise with the State Level agencies to ensure prompt attendance of all complaints/representations.

16. Monitoring

16.1 Effective monitoring of the Programme being critical, the State Governments / UT Administrations will ensure that the officials are prompt in sending the requisite reports / information. to the State level Agency as well as the NRRDA. The On-line Management & Monitoring System 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 On-line Management & Monitoring System. They shall be responsible for uninterrupted maintenance of the Computer Hardware and Software as well as the Internet connectivity. The Software for the OMMS shall be supplied by the NRRDA and it shall not be modified at any level in the States; any requirement or suggestion for change shall be intimated to the NRRDA. In case of continued failure to update data on the OMMS, further releases to the State could be affected.

16.2 The State Government should provide necessary manpower, space and facilities to set up the Computer Hardware at the District and State Level apart from ensuring regular and timely feeding of data. Since most of 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 of the Hardware and also the Internet connectivity, with the State Server and the Central Server, of the Client Machines at the PIU/ District level. He /she shall be responsible 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. The data shall be updated as warranted but at least once a week. He /she shall also ensure that the photographs and video clips of each road work are regularly, and at least once every month, uploaded into the System.

16.4 Each State government would identify one officer of sufficient seniority and having adequate knowledge of Information Technology to function as State IT Coordinator. His / her function will be to oversee the regularity and accuracy of the data being furnished by the Districts. The IT Coordinator, who shall form part of the State-level Agency, shall also be responsible to oversee the upkeep of the Hardware and Software as well as the training requirements of the personnel dealing with the PMGSY.

16.5 The District Vigilance and Monitoring Committee set up by the Ministry will also monitor the progress and exercise vigilance in respect of PMGSY.

17. Maintenance of Rural Roads

17.1 While submitting the project for approval, each State Government / UT Administration shall identify a suitable Panchayati Raj Institution (District Panchayat/ Intermediate Panchayat), for undertaking the maintenance of the entire Core network and particularly the road works constructed / upgraded under this Programme. The State Government should issue necessary instructions to associate the identified Panchayati Raj Institutions with the execution of the work at all stages, especially submission of periodic reports relating to progress and quality of works. The State Authorities will be required to furnish an Undertaking that they would remit (to the identified Panchayati Raj Institution), from the State Government funds, the requisite cost of Maintenance. The State Governments will also offer an Undertaking for the release of maintenance costs, alongwith their project proposals. The Ministry of Rural Development would oversee the implementation of this undertaking. It shall be open to the State Governments / Panchayati Raj Institutions to develop sustainable alternative sources of funding for undertaking the Maintenance function. It must be emphasised that given the huge quantum of investment involved in the Programme, the specification and enforcement by the State Governments of a satisfactory mechanism to provide funding and other assistance for the proper maintenance of the PMGSY assets will be key to continuance of the Programme in that State.

17.2 The Rural Roads will be handed over by the PIU, on completion of the contract (including guarantee/maintenance period of 5 years), to the designated Panchayati Raj Institution for Maintenance, and a separate report will be made in all such cases under OMMS giving the name of the PRI and the date of its taking over.

Part III - Flow of funds, procedure for release and Audit

18. Flow of Funds

18.1 The State-level Agency (refer Para 7.3 above) shall select a branch with internet connectivity at the State Headquarters, of any Public Sector Bank or Institution based Bank for maintaining an Account of the Pradhan Mantri Gram Sadak Yojana. Once selected, the Account shall not be changed to any other Branch or Bank. There will be a written undertaking from the Bank that it will follow the Guidelines of Government of India for payments from the PMGSY Funds. The concerned branch will maintain Internet connectivity and enter the data into the relevant module of the On-line Management & Monitoring System.

18.2 The State level Agency will communicate to the NRRDA and to the Ministry the details of the Bank branch and the Account number. The Ministry of Rural Development shall release the funds, only into this Account, on the recommendation of the NRRDA, who shall satisfy themselves that the requirements in the Guidelines have been met.

18.3 The State level Agency will maintain only one Account for PMGSY funds, from which all payments will be made These shall relate to the Programme expenditure on road works. No other administrative expenditures (such as purchase of vehicles and office equipment) shall be debitable to this account.

18.4 The Programme expenditure will be regulated as follows:

18.4.1. There will not be separate bank accounts of PIUs for Programme expenditure. 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 of the Agency, so as to enable them to draw on the funds of the Agency from the Programme Account. They shall be the Authorised signatories for issuing cheques.

18.4.2 The Agency would nominate one of its senior officers, normally the Finance Controller, or an officer not below 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 account.

18.4.3 The Empowered Officer will furnish this list of Authorised Signatories (Executive Engineers of Districts / Heads of PIUs) to the Bank, apart from himself maintaining a record of it. This list will be periodically verified to ensure its accuracy. The Bank will issue separate Cheque Books to each of the Authorised Signatories, and will keep their signatures on record.

18.4.4 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. This will be in conformity with the Work Agreements. The Empowered Officer may lay down suitable limits on monthly 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.

18.4.5 The Authorised Signatories will make payments, as per the established 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 OMMS.

18.4.6 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, among others, like 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.

18.4.7 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 State level Agency to invest these funds in any other Bank / Branch, whether for short or medium term, including under Fixed Deposits.

18.4.8 The Bank will render monthly account, in respect of PMGSY Funds, to the PIU, the State level Agency and the National Rural Roads Development Agency .

18.4.9 A tripartite Memorandum of Understanding will be entered into between the Bank, State-level Agency and the Ministry of Rural Development 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 Account.

18.5 The NRRDA may, from time to time, issue such directives as necessary for smooth flow of funds and effectiveness of the Programme.

18.6 The Accounting System to be prescribed by the NRRDA, which would be largely based on the well-established Accounting system of the Works Departments, would be utilised for this Programme.

18.7 Money accruing as Interest will be added to the PMGSY funds. 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 as well as NRRDA, the interest amount credited by it to the Account from time to time.

19. Procedure for Release Of Funds to the State Level Agency

19.1 Since the PMGSY has adopted a Project approach where road works have to be completed within a stipulated time-limit, the cost of the projects cleared for a State for each Phase of the PMGSY will be made available to the State level Agency in suitable instalments (upto four instalments).

19.2 The first instalment in a particular year amounting to 25% of the value of projects cleared by the Ministry shall be released after the project has been cleared by the Ministry and the release of remaining instalments would be subject to utilisation of 60% of the total available funds as well as completion of at least 80% of the road works upto the (but not including) the year previous to the current year and fulfilment of other conditions, if any, stipulated while releasing the previous instalment. Total available funds will be the funds available (including interest accrued) with the State-level Agency at the time of the release of the previous instalment / plus the amount of the previous instalment.

19.3 For release of every instalment (except the first ), conditions prescribed at A and B below will require to be met while those at C and D are one-time conditions to be met. The Conditions are as follows:

  1. Utilisation Certificate for the Funds released earlier. The Utilisation Certificate shall be in the form prescribed.

  2. A Certificate by the Bank Manager, indicating the balance amount on the date of issue of the Certificate (this should tally with the on-line data).

  3. A Certificate that works which were sanctioned more than two years earlier have been duly completed and the funds released for such works have also been fully utilised.

  4. For all releases after October of every year, production of an Audited Statement of Accounts and a Balance Sheet, duly certified by a Chartered Accountant for the accounts of the previous financial year.

19.4 For the purpose of releasing funds, the State would be the Unit.

20. Audit

20.1 The State level Agency will ensure that the accounts are audited by a chartered accountant of standing 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 Chartered 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 Auditor-General 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 information to District level Vigilance and Monitoring Committees and the Panchayati Raj Institutions.

21. Miscellaneous

21.1 The National Rural Roads Development Agency (NRRDA) will designate reputed Technical and Research Institutions such as the Indian Institutes of Technology as Principal Technical Agencies, to provide technical support and to take up research projects, study and evaluate different technologies and advise on measures to improve the quality and cost norms of Rural Roads

21.2 Within 15 days of the date of Work Order or at the time of laying of the Foundation Stone for a road work (whichever is earlier), the 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 completion of construction, name of the executing contractor and the Panchayati Raj Institution maintaining it. It is desirable that this is in the form of a permanent brick-masonry/ concrete structure at both ends of the road

21.3 The National Rural Road Development Agency may, in co-operation with the State level Agency, organise suitable Training Programmes for the PIU personnel.

21.4 Planting of fruit bearing and other suitable trees, on both sides of the roads would be taken up by the State Governments / UT Administration from their own funds.

21.5 The Ministry of Rural Development may, from time to time, issue such directions as may be necessary for smooth implementation of the Programme.

22. Convergence

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 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.