The Need for a Master Plan
Connecting rural habitations through good quality all weather roads, which
provide access to services and also opportunities for the rural population to
increase their income, is an important part of the socio-economic development
process. For sustainable development through rural roads, it is necessary that
a proper Master Plan is prepared in order that all activities relating to
rural roads such as Construction, Upgradation and Maintenance can be taken up
systematically within the frame work of this Master Plan.
District Rural Roads Plan (DRRP)
The District Rural Roads Plan is a compendium of the existing and proposed
road network system in the District which clearly identifies the proposed
roads for connecting the yet Unconnected Habitations to already connected
Habitations/ All-weather roads, in an economic and efficient way.
District Rural Roads Plan shall be prepared at two levels – the Block and
the District. Keeping in view the convenience from the point of view of Map
preparation and Data collection, the work would primarily be done at the Block
level. Block-wise Road Plans would be prepared in accordance with the
directions contained in this Manual and the priorities spelt out by the
District Panchayat. After the Block-wise Master Plan has been approved by the
Intermediate level (Block) Panchayat, it would be forwarded to the District
Planning Committee (DPC), where the Block Road Plans would be integrated into
the District level Master Plan, called the District Rural Roads Plan. This
would be placed before the District Panchayat (or the District Rural
Development Agency - DRDA where the District Panchayats do not exist) for
consideration and approval. Then Plan would be forwarded by the PIU to the
Nodal Department/ SRRDA for the approval of the State level Standing
Committee. After approval, it would become the final District Rural Roads
Plan, and would form the basis for selection of road works under PMGSY,
through the Core Network (see para 3.2.).
and deficiencies may exist in the DRRP and Core Network, due to factual
inaccuracies such as population data. These may be detected at a later stage
by the PIU, or the affected people may represent against the error. All
detected errors and deficiencies or representations regarding them shall be
carefully examined by the PIU and action shall be taken to amend or correct
the DRRP wherever required. The approval of the State Level Standing Committee
shall be obtained through the SRRDA for all changes Concurrence os the NRRDA
shall be obtained and thereafter changes should be made in the OMMS.
Programme Implementation Unit (PIU)
As per PMGSY Guidelines and as detailed in Chapter 2, every State is to
identify an Executing Agency for the execution of the Programme. The Executing
Agency is expected to set up the Programme Implementation Unit (PIU) in each
District. In most States, the Public Works Department (PWD)/ Rural Engineering
Service (RES) has been identified as the Executing Agency by the State
Government. The PIU at the District Level is usually headed by a
Superintending Engineer/ Executive Engineer of the Division of the PWD/ RES .
The Preparation of the Master Plan for each Block is the responsibility of the
PIU, who must ensure that it has the approval of the Panchayati Raj
Institution. Care must also be taken to see that the proposals of the MPs and
MLAs, who have an intimate knowledge of their areas, are fully taken into
consideration while preparing/ finalising the Plans.
The Ten Steps in Preparation of DRRP
The Ten Major Steps in the preparation and finalisation of the District Rural
Roads Plans are as under:
of the Team.
of Data base.
of a list of Unconnected Habitations and the selection of the optimal road
and approval by the Intermediate Level Panchayat.
of the Block Level Rural Roads Plan to the District Planning Committee.
by the District Planning Committee.
and approval by the District Panchayat.
of the District Rural Roads Plan to the State Level Standing Committee.
of the District Rural Roads Plan by the State Level Standing Committee.
Step-I: Constitution of the Team
The first step in the preparation of the Rural Roads Plan is the identification
of the team who will perform the work at the Block level. The Team, for this
purpose, should ideally include the Sub Divisional Magistrate (SDM), the
Sub-divisional Police Officer or S.H.O, a Revenue Officer of suitable rank, the
Block Development Officer (BDO), local officers of the Transport and
Agricultural Marketing Departments and Secretary of the Intermediate level
Panchayat. The Assistant Engineer of the PIU would be the member-Secretary. In
areas with special characteristics, local officials of the Department concerned
should be included, if these characteristics impinge on rural transportation.
The senior most officer (the Sub-divisional Magistrate if possible) should be
designated to lead the Team. The Chief Executive officer (Secretary) of the
District Planning Committee/ Chief Executive Officer, Zilla Panchayat/ District
Collector would select the team for this purpose.
Team should arrange to collect data on all items required for the preparation of
the Block-wise Road Plans. These are as follows:
authentic map of the Block on 1: 50,000 scale based on Survey of India
road maps and road inventory details.
District level Statistical Handbook.
Step-II: Preparation of Database
The Team should thereafter undertake the task of tabulation of Data, derived
from secondary sources, relating to Habitation and Rural Road inventory.
Although Habitations with population of more than 500 persons only [ more
than 250 in hill states (North-Eastern States, Sikkim, Himachal Pradesh,
Jammu & Kashmir and Uttaranchal), desert areas and tribal areas] are to
be taken up under the PMGSY, for the purpose of preparation of the District
Rural Roads Plan, all Habitations having a population of 100 or more persons
and which are more than 500 metres (half-a-kilometre) away from each other,
should be listed and separately identified on the map. This will enable the
plan to have the depth necessary for long term and broad based use.
habitation has to be given a specific code number. This code shall contain a
combined identification of state, District, Block and habitation code to
make a unique alphanumeric code (see annexure-3.1).
name and code number for State, District and Block along with the
habitations are to be tabulated in Format-I (Annexure-3.2). This Format
gives the reference of the block and demographic and infrastructure data of
habitations under that block. The explanation of abbreviations and
instructions for filling the Format-I is also given in Annexure-3.2 as
“Instructions for filling Format-I”. The last two columns of Format-I
(annexure- 3.2) shall be filled up after completing Format-II
A comprehensive inventory of all Rural Roads including Other Districts Roads
(ODR) and Village Roads (VR) and any other existing earthen roads having a
Land Width of 5m or more is to be prepared at block level. The inventory
details are to be filled up in format-II (Annexure-3.3). The annexure also
provides the instructions for filling the Format-II as “Instructions for
and Secondary Road Data
The National Highways (NH), State Highways (SH) and Major District Roads (MDR),
which form the primary and secondary road network in a region, will also be
required for analysing connectivity of habitations. Therefore a record of
all such roads passing through the Block shall be prepared as indicated in
may happen that the data available through the secondary sources may not be
accurate or up-to-date. These would, therefore, have to be physically
verified through field visits. The most important activity in preparation of
Database is the actual field visit. This must be undertaken with great care
as the accuracy of maps and the data collected and tabulated in FORMATS I,
II & III would depend on the rigour and discipline exercised during the
Survey of Existing Rural Road Network
The inventory of the road network prepared as above gives an overall
assessment of each road link. It does not give a detailed account of each km
of the road, in terms of its present condition. Such data is needed for
selecting projects for upgradation or maintenance. A reference may be made
to Chapter 14 for using the data for maintenance management. To prioritise
upgradation and maintenance operations, a condition survey of all the Rural
Roads in the Core Network shall be carried out periodically, the first
survey results being incorporated into the District Rural Road Plan itself.
The first condition survey and the field verification of the road inventory
can be usefully done at the same time.
A Simple Pavement Condition Index (PCI) based on Visual Inspection or
Driving Speed or riding comfort, already in use in many States, would be
used and prioritisation methodologies applied for determining Upgradation as
well as maintenance priorities. Details of the procedure for determination
of the Pavement Condition Index (PCI) are given in Para 14.9 and Annexure
PCI data is an integral part of the Online Management & Monitoring
System (OMMS) and the data will be included in the ‘Road Master’ for
each kilometre. The PCI data after collection in the manner described in
Annexure-14.7 will be entered into the OMMS database by the PIU and a
District-wise output generated, copy of which will be furnished to the State
Rural Roads Development Agency. Another copy will be supplied to the STAs
for record. The Proforma is given in Annexure 14.8.
Step-III: Map Preparation
After the database has been prepared from secondary sources and verified through
exhaustive field surveys, the Team would commence the task of Map preparation.
The exercise should be closely supervised by the Head of the Programme
Implementation Unit. Mapping should be done by trained draftsmen, who are
normally available with all Engineering Organisations/ Revenue Departments.
map should also show the latitudes and longitudes. This will facilitate the
sequential arrangement of the Block Maps and in the preparation of the District
map. The basic Rural road map shall be prepared at the Block level. The scale to
be adopted is 1: 50,000. For convenience, Survey of India topo-sheets available
on this scale can be used as the base. On this map, the data collected on the
Habitations and the Road Inventory shall be incorporated. The map shall be drawn
indicating the following details:
All the administrative boundaries should be shown as below:
and National, if any
The Road Network map should show the existing alignment (location) of
National Highways, State Highways, Major District Roads, Other District
Roads, Village Roads and cart tracks etc, which have land width of 5 meters
or more, accurately using the information compiled in FORMAT-II. The
legend to be used for denoting these features (also railways, if any) on the
map are as under:
existing cart-tracks, kutcha roads etc having land width 5m or more)
Core Network (see para 3.2 below) should be coloured Red, above the
all-weather/ fair-weather Rural Road Line
of Tourist Interest
habitations shall be shown as under
500 – 999
three digit Habitation Code should also be indicated beside shape code of each
habitation. While numbering the Habitations, it should be remembered that this
will be a three digit code and would basically be the serial number of the
Habitation in the Block after the habitations are arranged alphabetically.
Route and Through Route Identification
Routes are the roads connecting a single Habitation or a group of
Habitations to Through Routes or District Roads leading to Market Centres. Through
Routes are the roads 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 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.
It is possible that some of the Through Routes (sometimes even Link Routes)
may cut across Block boundaries. While integrating the Block Plans into the
District Rural Roads Plan, it should be ensured that the continuity is
maintained. Link Routes and Through routes will be distinguished on the Map by
use of the Letter L and T respectively followed by the relevant road code.
Scheme of Map
The use of too many colours makes the presentation and interpretation of the
maps difficult. Accordingly the existing roads should be shown in black, while
the ultimate “Core Network” (see para 3.2) should be shown in Red. The
proposed roads for linking the unconnected habitations shall be shown dotted
in red. The legend for the habitations of various population sizes is also
indicated therein. All habitations should be code numbered in the map.
the Block level maps should then be integrated into a District level map,
taking care to match all roads, railway lines, rivers, canals etc. The
District level map shall be to the same scale as the Block level maps.
maps should in due course be got digitised so that it becomes easy to put them
all on a computer-based system, preferably on a GIS platform. Separate
detailed instructions will be issued by NRRDA in this regard in order to
facilitate a web-based GIS which can be used for monitoring and decision
Step-IV: Preparation of the list of unconnected habitations and the selection of
optimal road links
Next, the Team has to undertake the task of using the available data and the
information available from the Map to prepare the Rural Roads Plan of the Block.
The Team should make two separate lists of Unconnected Habitations : (i) those
which are connected only by a fair weather road which needs to be upgraded to
the prescribed specifications and (ii) those which have no connection at all,
not even by a fair-weather road. Both the lists should be in descending order of
their population. A Habitation with higher population will rank higher in the
the lists have been prepared, the next task is to find out the most efficient
and economic route, in terms of cost and utility, for providing access from an
eligible unconnected habitation to an existing All-weather road or to an already
connected habitation. Studies have revealed that upto 95% of the trips made by
villagers are to Market, Health, Education and Administrative centres.
Consequently, while selecting the road link, the Team would have to take into
account the requirements of the residents of the Unconnected Habitation and also
see as to which connection best serves their needs. The views of the Village
Panchayat or the Gram Sabha may also be ascertained for this purpose.
often, an Unconnected Habitation can be connected in more than one way. Often
the Market Centre is in a different direction from say, the Taluka Headquarters.
In case a consensus is not easily reached, the choice from various alternative
links may need to be made on the basis of weightages accorded to different
Socioeconomic services. Since PMGSY envisages only single connectivity, it is
necessary to choose the most efficient road link in terms of utility. The
District Panchayat shall be the competent authority to select the set of
Socioeconomic/ infrastructure variables best suited for the District, categorise
them and accord relative weightage to them. This would be communicated to all
concerned before commencing the preparation of the District Rural Roads Plan.
Numbers of people benefited per unit cost, number of persons having all weather
access to a hospital/school etc are a few examples of services/factors.
proposals of the MPs and MLAs would be taken into account by the Team preparing
the Draft Rural Roads Plan for the Block. A specific list would be made of the
roads suggested by the MPs and MLAs and remarks indicated whether they are
included or not; if not, the reasons thereof should be recorded. The Team would
then prepare the Draft Rural Roads Plan for the Block.
Step-V: Consideration and Approval by the Intermediate Panchayat
This Draft plan would be presented before the Intermediate Panchayat by the
Leader or the Member- Secretary of the Team preparing the Draft Rural Roads Plan
for the Block. In this meeting, Officers of appropriate level, who have
knowledge of the area, may also be called. The Plan should be finalised by the
Intermediate Panchayat. Any changes made by the Intermediate Panchayat should be
separately mentioned and causes thereof should be indicated.
Step-VI: Submission of the Block Rural Roads Plan to the District Planning
The Team will, after obtaining the approval of the Intermediate Panchayat,
submit the Block Rural Roads Plan to the District Planning Committee where these
have been constituted, along with original map and all the Formats and Tables.
In its absence, the Plan would be submitted to the Chief Executive Officer/
District Collector. The Team would record its views in case it feels that the
Intermediate Panchayat has deviated from the Guidelines in this regard.
Step-VII: Scrutiny by the District Planning Committee
The District Planning Committee is the body created in the District for ensuring
proper preparation of Plans for the development of the District. The District
Rural Roads Plan is one which would have a tremendous bearing on the all round
socio-economic development of the District. Therefore, it is appropriate that
all the Block Rural Roads Plans are scrutinised by the District Planning
the Rural Road Plans have been received from all the Blocks, these would be
scrutinised by the Chief Executive of the District Planning Committee/ Chief
Executive Officer/ District Collector. He would be assisted by a Committee
comprising of the Head of the District Programme Implementation Unit (Member
Secretary); Superintending Engineer/ Executive Engineer PWD; Executive Engineer,
Rural Engineering Service and senior officers of the Revenue, Rural Development,
Transport and other concerned Departments, as Members. They should look into the
deviations, if any, made by the Intermediate Panchayat and the justifications
therefore. They must ensure that the Road Plan is according to the criteria
given by the District Panchayat with respect to the Socio- Economic/
Infrastructure variables and also that the proposals of the MPs and MLAs have
been duly considered. If any provision made by Intermediate Panchayat or the
Team preparing the original plan is not as per the Guidelines, such provisions
should be changed. The reasons thereof should be mentioned clearly.
Committee, after collating all the Block Rural Road Plans will prepare the draft
District Rural Roads Plan as per the format shown in Annexure 3.4. It would also
contain the priority list of road works to be taken up under the Pradhan Mantri
Gram Sadak Yojana, in line with the principles enunciated in Para 3.3.
Step-VIII: Consultation with the District Panchayat and Elected Representatives
and Approval of the DRRP
The Draft District Rural Roads Plan would then be presented to the District
Panchayat by the Chief Executive of the District Planning Committee. MPs should
be specially invited to this Meeting. Members of the Committee who prepared the
District Rural Roads Plan should be present in the Meeting. It should be
discussed and adopted by the District Panchayat, with such changes as may be
considered appropriate, but strictly within the framework of the PMGSY
Step-IX: Forwarding of the District Rural Roads Plan to the State Level Standing
After approval by the District Panchayat, the District Rural Roads Plan, along
with the District Priority list, would be forwarded through the SRRDA to the
State Level Standing Committee.
Step-X: Vetting of the District Rural Roads Plan by the State Level Standing
The District Rural Roads Plan would be vetted by the State level Standing
Committee, headed by the Chief Secretary/ Additional Chief Secretary, as the
case may be. The Committee could call the Chief Executive Officer/ District
Collector to present the Plan before the Committee. This Committee should go
into the details of the Plan and priorities and links decided by the District
Panchayat. The changes made by the District Panchayat and reservations, if any,
of the District Planning Committee, can also be discussed. The State level
Standing Committee should ensure that priorities decided by the District
Panchayat, as well as direction of the Government of India, have been followed
in preparing the District Rural Road Plans in totality and the proposals of the
MPs have been duly considered. The Plan, after it has been vetted by this
Committee, would be the final District Rural Roads Plan. A copy of the District
Rural Roads Plan would be sent to NRRDA for record..
District Rural Roads Plan would, henceforth, constitute the basis of preparation
of projects under the Pradhan Mantri Gram Sadak Yojana as far as that particular
District is concerned. The State Governments would be required to attach the
approved the Core Network along with project proposals under Pradhan Mantri Gram