Rural Road Maintenance Policy

Government of Kerala
(PMGSY and Non PMGSY)

Construction of bridge in Era - Valadi road in

Veliyanad Block, Alappuzha District

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 Acknowledgements

The Kerala State Rural Road Development Agency would like to

express its gratitude to the Ministry of Rural Development,

Government of India and National Rural Roads Development Agency,

Government of India and Government of Kerala for their support and

cooperation in drafting the Policy on Maintenance of Rural Roads in

Kerala State.

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 Foreword
The Government of India is implementing a massive programme of
village connectivity with the ultimate aim of connecting all
habitations with all weather roads through the PMGSY.
Construction of rural roads brings multifaceted benefits to the
rural areas by way of increases in agricultural production and the
size of markets, better prices for agriculture produce, reduction in
transport costs and the creation of off-farm employment
opportunities. They also provide access to medical and educational
facilities. Provision of rural roads is an effective element of a poverty
reduction strategy.
Rural roads form a large share of the total road network. If
these roads are not maintained, benefits disappear. The principal
objectives of road maintenance are to keep roads open, reduce rate
of deterioration and extend life of the road network, reduce vehicle
operating costs and improve the speed and frequency of public
transport services. Maintenance also safeguards previous investment
in construction and reduces burden of huge rehabilitation costs later.
Maintenance for rural roads also generates local employment
opportunities and additional market prospects for the local
construction industry. Although rural roads are being provided for
socio-economic benefits, their maintenance makes a sound
economic sense. These roads provide an economic rate of return
which is often in the range of 25 to 30 percent.
Keeping them in a serviceable condition is crucial to the
agricultural growth and affording means of access to millions of rural
people to social facilities such as health and education.
The Policy on maintenance of rural roads in Kerala State is presented
here with which covers the following elements like State
Government commitment, adequate funding, Institutional reforms
and Implementation efficiency aspects. Even though the government
is setting apart considerable amount for the maintenance of rural
roads through PRIs, due to the lack of efficient and scientific
engineering planning major portion of the expenditure in this sector
becomes futile.

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 This maintenance policy for the rural roads may serve as a
useful model and guide for not only the State of Kerala but also for
other states in their efforts to put maintenance of rural roads on a
solid footing so that road assets being created at huge cost to the
economy are preserved and the benefits fully accrue to the people.

KSRRDA

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CONTENTS
Acknowledgement --------------------------------------------------- 2

Foreword------------------------------------------------------------------- 3

Abbreviations---------------------------------------------------------- 6

Definitions----------------------------------------------------------------- 8

Executive Summary----------------------------------------------------10

1 Introduction---------------------------------------------------------------14

2 Government Commitment------------------------------------------ 19

3 Adequate Funding----------------------------------------------------- 30

4 Institutional Reforms--------------------------------------------------33

5 Implementation Efficiency------------------------------------------36

6 Staffing---------------------------------------------------------------------39

7 Planning and Design--------------------------------------------------42

8 Inspection-----------------------------------------------------------------49

9 Execution of maintenance operations---------------------------60

10 Monitoring----------------------------------------------------------------62

11 Financial Management----------------------------------------------72

12 Quality assurance----------------------------------------------------- 76

13 Maintenance operations through contracts-------------------81

ANNEXURE---------------------------------------------------------------------83

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 Abbreviations
ADT -Average Daily Traffic
AE -Assistant Engineer
AEE-Assistant Executive Engineer
ARMOP: Annual Road Maintenance and Operation Plan
BT -Black-Top (surfaced roads)
CBO -Community Based Organisation
CC -Cement Concrete
CE -Chief Engineer
CUCPL- Comprehensive Upgradation cum Consolidation Priority Lists
CV -Commercial Vehicle
CVD -Commercial Vehicle per Day
DPR -Detailed Project Report
DRD -Department of Rural Development
DRDA -District Rural Development Agency
EE -Executive Engineer
FY -Financial Year (1st April to 31st March)
GOI -Government of India
GOK -Government of Kerala
Ha -Hectare
IRC -Indian Roads Congress
KSRRDA-Kerala State Rural Road Development Agency
MDR -Major District Road
MLAs -Members Legislative Assembly
MMS -Maintenance Management System
MNP -Minimum Needs Programme
MORD -Ministry of Rural Development, Government of India
MOSRTH -Ministry of Shipping, Road Transport and
Highways,Government of India

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MPs -Member s Parliament
NABARD -National Bank for Agriculture and Rural Development
NH -National Highway
NHAI -National Highways Authority of India
NHDP -National Highway Development Project
NRRDA -National Rural Roads Development Agency
ODR -Other District Road
PC -Premix Carpet
PCI- Pavement Condition Index
PCU -Passenger Car Unit
PIU -Project Implementation Unit
PMGSY -Pradhan Mantri Gram SadakYojana (The PrimeMinister's
Rural Roads Programme)
PRDD -Panchayat and Rural Development Department
PRI -Panchayati Raj Institution
RCI – Road Condition Index
RIDF -Rural Infrastructure Development Fund
RMMS- Road Maintenance Management System
SD -Surface Dressing
SE -Superintending Engineer
SFC -State Finance Commission
SGRY –Sampoorna Grameen Rozgar Yojana
SH -State Highway
TNA -Training Needs Assessment
TOR -Terms of Reference
VR -Village Road
WB -World Bank
WBM -Water Bound Macadam

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 Definitions
Annual Road maintenance Operation Plan means the annual road
maintenance and Operations plan for the State of Kerala maintained
by LSGD/PIU
DRRP-A mapping of all rural roads having their connection to higher
order road are done under GIS platform for every district
Defect means any form of failure in the road surface including
cracks, deformation and disintegration. These types of failure can be
structural or visual in nature.
Link Routes are the roads connecting a single habitation or a group
of habitations to Through Roads or District Roads leading to Market
Centres. Link Routes generally have dead ends terminating on
habitations, 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.
KSRRDA means Kerala State Rural Road Development Agency
LSGD means Local Self Government Department
Maintenance with respect to roads means repair or remedial
treatment to road formation and pavement failures. The purpose
being to make the road trafficable until reconstruction works can be
carried out by the department.
Major District road means road within the District serving areas of
production and market and connecting these with each other or
within the highways.
Pavement Condition Index(PCI) is a numerical index used to
indicate the condition of the pavement. It is a statistical measure and
requires manual/mechanical survey of pavement.

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Primary Road Network means the main road which can be either
single carriageway or dual carriageway. Broadly primary system
comprises National Highways and Expressways
Rural Roads means road connecting villages or group of villages
with each other and to the nearest road of a higher category.
Secondary Road Network is made up of State Highways and Major
District Roads
State Highways means arterial routes of the State linking District
Head quarters and important cities and tourist centre and ports
within the State and connecting them with National Highways of the
neighbouring States.
Through routes are the ones which collect traffic from several link
roads or a long chain of habitations and lead it to a market centre or
a higher category road, i.e. the District Roads or the State or National
Highways.

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 Executive Summary
Roads are considered to be essential for economic growth, social
development and poverty alleviation. The road network in the
country today stands over 4.6 million km including 1.0 million km of
earth tracks built under various employment creation and poverty
alleviation programmes. The statistics of roads in Kerala shows the
371332kms of roads are rural roads. About 207809kms of rural roads
are falling into disrepair every year due to lack of maintenance in the
state. The poor condition of these roads also results in an increase in
the unproductive time spent on the transport of people and goods.
Moreover the benefits created through the investments in access
improvements for the rural population are being lost.
Through the Prime Minister’s Rural Road Programme (PMGSY), at its
onset, aimed to connect all villages with a population of more than
1000 inhabitants with all-weather roads. Since 2007, this goal has
been increased to include all communities with more than 500
inhabitants. Rural road connectivity remains a highly important
priority and as a result similar programmes are on-going in many
states to connect smaller communities. Considering the impressive
results of these programmes, it is clear that this targeted focus on
improving rural access has been extremely successful. The reasons
for its success can to a large extent be credited to the effective
management put in place to implement this programme, including
key components such as establishing capable client organisations,
streamlined procurement procedures, standardised technical
designs, sound monitoring and quality assurance procedures and a
regular and adequate flow of funds from central authorities down to
project implementation levels. As such, there are a string of lessons
learnt and good practices serving as good examples on how to
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organised large-scale infrastructure programmes.The Ministry of
Rural Development administers the programme.
Maintenance of the road assets being created has emerged as a key
issuefor sustaining investments in the road sector. The PMGSY itself
has set out clear guidelines on maintenance. However the major
concern is that whilst the PMGSY roads may indeed be maintained,
at least for the five-year retention period, this will divert funds away
from the maintenance of the rest of the rural road network. An
additional concern is the current capacity of the local authorities to
maintain the existing network. These concerns are reflected in the
increased interest in rural road maintenance issues. The NRRDA itself
has identified maintenance as a key determinant of the success of the
PMGSY. The policy brings out an assessment of the current situation
and possible options for developing a sustainable maintenance
strategy for rural roads in Kerala.

Importance of Maintenance:Roads occupy an important position in

the transportation system. Road infrastructure is critical to economic
growth and social development. Maintaining these roads in
serviceable condition is crucial to agricultural and industrial growth
on the one hand and affording means of access to the public. Rural
Roads being the constitutional responsibility of the State, the PMGSY
is a one time intervention and maintenance of core network will
continue to be with the State. If adequate resources, institutional
arrangements and capacity of maintenance are not available by the
States, the assests created under PMGSY and with other funding
agencies will start deteriorating and their useful lives will be
curtailed. GOI insists that State must maintain all rural roads
including roads constructed under PMGSY to qualify for continuing

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support programme funding may be counterproductive if it leads to
cutback of maintenance on more important roads.. It would not be
out of place to recall that a World Bank study in 1988demonstrated
that spending one rupee on maintenance would have saved three
rupees in rehabilitation.
In the case of rural roads, the condition is still more serious as it
affects the rural poor badly. Mobility to schools and primary health
centers is affected. The continued extension and improvement of the
road network does however create new and growing challenges in
terms of an increasing maintenance burden. In order to sustain the
benefits of the investments made in building and improving roads,
there is a need to boost capacity in terms of providing adequate
maintenance.
The poor condition of roads has a profound effect on vehicle
operating costs and acts as a disincentive for agriculturists and
plantations to increase their production, as more time is lost in
evacuation of their products to markets. These assets are
deteriorating every year. More emphasis needs to be placed on the
maintenance of already existing infrastructure assets. This implies
that an increasing proportion of funds and managerial capacity
needs to be allocated for protecting the investments made earlier in
building the road network.
These huge national assets justify the application of sound asset
management principles to achieve the public expectations. From a
technical point of view, there is no shortage of technical guidance on
how the works should be carried out. The challenge seems to be
more related to how maintenance should be organised and when it
should be carried out. There is, however, a need to define
requirements at operational level which ensure that technical means

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are secured in order to actually carry out the required maintenance.
Therefore, it has been felt necessary to put in place a Standard
Operating Procedure for selection, prioritation and maintenance of
the roads at operational level for securing adequate and timely
maintenance of the rural road network.Since rural roads are
basically a state subject, it is now critical that the State Governments
undertake the required policy reforms for achieving sustainable
maintenance of rural roads.

The purpose of this policy is to provide a guiding frame work for

establishing the objectives, making arrangements for and
establishing sets of procedures for the maintenance and repair of
rural roads, which contributes the major percentage of total road
network of the state, by Government of Kerala.

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 Chapter 1
Introduction
Pradhan Mantri Gram Sadak Yojana (PMGSY) was launched on
25th December 2000 as a fully funded Centrally Sponsored Scheme
to provide all weather road connectivity in rural areas of the country.
The programme envisages connecting all habitations with a
population of 500 persons and above in the plain areas and 250
persons and above in hill States, the tribal and the desert areas. As a
result of the PMGSY the rural road network has experienced a
considerable growth in terms of its total length. Also, this
programme have contributed to the general improvement of the
quality of the rural road network.It is the Flagship programme of GOI
for creation of Rural Infrastructure. Tracks and trails and other local
roads in a very poor shape have been upgraded to all-weather
standards with proper drainage and river crossings. This massive
improvement of the rural road network has several benefits, both in
economic and social terms. Communities are no longer isolated and
can partake in mainstream economic and social activities and access
to basic services such as health and education is improved as a result
of the improved roads.
Kerala has been identified as one of the States to connect
the rural population for a sanctioned length of 3349kms on PMGSY-I
and 570km on PMGSY-II scheme. Road network plays a very
important role in the state of Kerala. To achieve connectivity to the
remotest villages in the State, the Government has been relentless in
its effort and after the inception of PMGSY; During PMGSY-I
implementation in Kerala State, 1430 proposals (855 packages) of
roads were approved (cost Rs998 crore) at an average estimated

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cost of just over Rs29.82 lakh per km. In addition to the above the
Government of Kerala has contributed 314 crores towards tender
excess and smooth implementation of the scheme.

Abstract of PMGSY-I Projects approved by GOI

During Sanctioned Completed

2001-2015 No Length in KM No Length in KM
All States 139824 539523 113941 416786
Kerala 1430 3348 1152 2663

Roads are the critical infrastructure component for economic

growth and social development of the State and the surrounding
region. One of the key issues that had emerged during the
implementation of PMGSY is the preservation of the infrastructure
assets being created by the programme through effective
maintenance. For roads constructed under PMGSY, separate
maintenance contract is made mandatory with the contractor of the
work for maintenance during the defect liability period of 5 years
immediately after construction. This arrangement addresses the
immediate maintenance needs for PMGSY roads, however, this
should not be considered in isolation of the condition and
maintenance options for the rest of the road network serving rural
people.
The principal objectives of road maintenance policy is to provide a
guiding frame work, making establishment& establishing
procedures to keep roads open, reduce rate of deterioration and
extend life of the road network and improve the speed and
frequency of public transport services. Comfort, convenience and
safety are assured for road users. Maintenance for rural roads also

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generates local employment opportunities and additional market
prospects for the local construction industry. Maintenance of rural
roads provides an economic rate of return which is often in the range
of 25 to 30 per cent. Maintenance fund of constructed roads in
PMGSY is budgeted by the State Government and placed at the
disposal of KSRRDA in a separate maintenance fund account.
Assets preservation is more important than asset creation. If care is
not taken for a scientific Asset Management Strategy, asset erosion
takes place resulting in huge replacement of expended cost .To
preserve the assets, on expiry of 5 year post construction
maintenance, PMGSY roads are to be placed under zonal
maintenance contract consisting of 5 year maintenance including
renewal to be continued as a cyclic process.
A wide range of government institutions is building rural roads in
India. In Kerala, the Panchayat Raj Institutions (PRIs)are envisaged to
be responsible for the maintenance of rural roads under the control
of Local Self Government Department (LSGD).The setting up of a
sustainable maintenance regime will require:

Adequate resource mobilisation for maintenance

Institutional arrangements for allocating resources and
managing
the road network;

Strengthening the institutions to undertake planning, design
and
implementation of maintenance interventions, and providing
technical support to them;

Developing appropriate and workable maintenance planning
and implementation systems.

The road that fails, crack, get deformed or disintegrate present a

danger to road users. In addition they impose wear and tear on
vehicles, increased consumption of fuel, delay in travel and various
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other economic costs. There is a need for the concerned agencies
and organization to effect repairs and restoration of road in a timely
and systematic manner. The objectives of the policy are to enable:

To comply with GOI vide letter D.O. No. P-
17029/01/2006/WB/110/Pt dated 07/07/2015, GOI insisted a
Rural Road Maintenance policy approved by the State
Government.
 Adequate, timely and sound maintenance of roads to provide
safe convenient and efficient access and usage to road users
 Judicious and optimal utilization of available funds and
resources for the maintenance and repair of roads
 Efficient maintenance by using appropriate technology, State of
Art and effective repair treatments by inducting new
technology and equipment in road repair and maintenance
work.
 Capacity building and organizational development of the
manpower and agencies engaged in road construction,
primarily maintenance and repair in the State for efficient
discharge of road development and maintenance function.
Any inadequacy in funding and implementation on the ground
will result in the erosion of the asset base. The State is
committed towards ensuring adequate funds for maintenance
of the entire rural road network within its jurisdiction. Under no
circumstance shall maintenance be regarded as a secondary
issue.
The Govt. of Kerala intends to adopt a rural roads maintenance
policy for the planning & execution of maintenance of rural
roads under its jurisdiction and shall be called as “Kerala
Rural Roads Maintenance Policy”.

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Interpretation: If any question arises relating to the
implementation of these rules, the same shall be referred to the
Government for its decision which shall be final. The decision
of the Government shall be implemented.
The Government of Kerala reserves the right to modify and
amend the said rules in this Policy from time to time as the case
may be.
Local Self Government Department (LSGD), Government of
Kerala shall be responsible for the implementation of this
policy through Kerala State Rural Road Development Agency
(KSRRDA).The policy takes into consideration the
Government’s commitment, adequate funding, Institutional
reforms, ensuring transparency in its working, bidding, e-
tendering, contract management and implementing rural road
maintenance.

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 Chapter 2
Government Commitment
1. Introduce a system of working out present asset value of the road
network at the end of financial year. Box 1 provides indicative
steps for assessing the replacement value of the network.

Box 1: Assessing Replacement Value of Rural Road Assets

1. Each Section/PIU office is directed to provide the
assessment of RCI every year immediately after the rainy
season.
2. Each Section/PIU office is directed to provide the
assessment of PCI value once in 2 years immediately after
the rainy season
3. Standard format for inventory and condition survey shall
be specified by KSRRDA for collection of data(NRRDA
can standardise these formats)
4. Each Section/PIU office works out the replacement value of
roads within its jurisdiction as per illustration given in
Table 1.
5. The replacement value of the total rural road network is
put in public domain by the state government.

Table 1:The replacement value of rural roads assets in the state

ofKerala (Broad Assessment based on as of 1stJanuary 2015)

Sl Category of Length Unit Cost Amount

No roads in Km Rs Lakh/km (Rs crore)
1 PMGSY Road 3348 80 2678

2 Other District Road 9939 50 4970

3 Village Road 33593 50 16797

Total 46880 24445

Note: 1. only Rural roads having land width more than 5.0 m is
considered)
2. SOR Variation in each year shall be applied to update the
replacement value
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Section/PIU office shall carry out evaluation of the existing road

condition in terms of physical condition of both the on-carriageway

as well as the off-carriageway through Road Condition Survey. Such

surveys shall assess type, magnitude, location of distressed road and

other physical parameters It shall evaluate Pavement Condition

Index (PCI) and take up prioritization of road on the basis of PCI and

Utility value for including in Comprehensive Upgradation cum

Consolidation Priority Lists (CUCPL) .

Road condition survey should be conducted on each stretch of road

on a yearly basis immediately after the rainy season. The data

collected should be recorded kilometre wise.

Traffic data on each road is to be collected as per the procedure laid

down in Indian Road Congress. The traffic data should show

classification of motorized, non motorized, commercial vehicles etc.

The traffic volume data should be used as an input in prioritization of

maintenance works.

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 Table-I : Rating of pavement for Rural roads

Sl Range of Distress (percent)

No Parameter Good Fair Poor

1. Potholes Up to 0.5 From 0.5 to 1.0 Above1.0

2. Patching Up to 5 From 5 to 20 Above 20

3. Cracking Up to 10 From 10 to 20 Above 20

4. Ravelling Up to 10 From 10 to 20 Above 20

5. Pavement Condition 4 to 5 2 to 3 1
Index

Apart from pavement, PIU should look at off- carriageway

requirements such as drainage and shoulders, performance of cross

drainage structures ( causeways, culverts, bridges), road signs,

pavement markings, traffic control devices, stretches subject to

flooding, side slope erosion, safety hazard spots, sight distance/

visibility at road intersections, particularly at the meeting points with

main roads. Table 2 provides a checklist of items relating to

structures that should be inspected.

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 Table 2 : Inspection of structures

Item Defect /Damage Item Defect /Damage

Cracks Drainage

Foundation Erosion along and Approaches Visibility

underneath
cracks settlement
Head and
wing walls blocked seepage cracks
holes
Erosion behind bends
walls
cracks Beams corrosion
Abutments
and piers blocked seepage rotting
holes
Erosion behind Vegetation
walls growth
blocked drainage Waterway Deposits of sand,
silts or debris
Culverts Blocked or silted Road damaged
furniture
cracks Missing

Settlement cracks Faded point

Decking Loose Banks Eroded

drainage Guard rails damaged

missing

The Section/PIU office shall identify different type of road

maintenance activities and prepare a manual of technical practices to

carry out the same.

2. Constitute a State level committee to work out realistic norms

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 for maintenance of rural roads covering Routine, Periodic,
Emergency Maintenance and Special Repairs. This Committee
will be authorised to review & revise norms on an annual basis.

Box 2: Fixing up Norms for maintenance of rural roads

The following committee would be responsible for fixing the
norms. The committee may comprise of:
1.Principal Secretary,LSGD
2.Chief Engineer, LSGD
3.Chief Engineer , KSRRDA
4.Secretary Finance
5.Other departmental representatives

From the Comprehensive Upgradation cum Consolidation Priority

Lists (CUCPL) to be prepared by each section office/PIU every year,
a schedule of activities to be done under Routine Maintenance,
Periodic Maintenance, Emergency Maintenance, Special Repairs,
Upgradation shall be produced before the Standing Empowered
Committee well in advance before the start of the relavant financial
year along with the allocation of resources to the different
operations/components.

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Box3:Major activities for incorporation in Maintenance Norms

A. Routine Maintenance

Pothole repairs

Erosion control on shoulders, slopes

Cleaning of drains, culverts, other waterways

Bush clearing

Cleaning and repair of road signs

B. Periodic Maintenance

Renewal of road surface

Major repairs to CD works

C. Emergency Maintenance

Reconstruction / repair of CD works damaged due to

floods, earthquakes

Reconstruction / repair of road sections damaged due to
washouts, floods, landslides, earthquakes

D. Special Repairs

Clearing of landslides

Repair/Reconstruction of retaining/breast walls

Repair/Reconstruction of damaged drains

Repair/Reconstruction of Road damaged due to laying of

Public service utilities

E .Upgradation

Relaying of crust due to increase in traffic

Pavement strengthening necessitated due to the increased
annual maintenance cost

The Operations/ components would be in the following manner

Table 1

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 ANNUAL CALENDER OF ROAD MAINTENANCE ACTIVITIES (Routine Maintenance)
Sr. Item of Work Intervention Response Frequency Cost
No. Standard Time

1 2 3 4 5 6

1. Cleaning/desilting of road side drain/gutter

Water diverted out of Causing a Thrice

drain onto roadway hazard to
traffic Immediate i) February
ii) May and
Obstruction or Siltation Blocked by 14 days and June
impeding flow more than prior to iii) August and
one-fourth of monsoon September
the size of and as and
the drain when
required
i.e. blockade
more than
one-fourth
2. Pothole Filling

Collection of patch repair i) January and

material for Bituminous February
roads ii) July and
September
Collection of patch repair i) January and
material for WBM repair February
ii) July &
August
Pothole filling in All potholes 21 days Immediate on
Bituminous and rigid ≤75mm their occurrence
pavement with depth
maximum dimension
Cracks >5mm
more than 200mm,
in width
cracks, edge breaks, ruts
and depressions Edge Breaks
>150mm in
width

Ruts >50mm
in depth

Depressions
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 >50mm in
depth

Pothole filling in WBM Depth > 21 days

with maximum 75mm
dimension >200mm

Pothole filling in Gravel/ Depth 45 days

Katcha surface >50mm

Width
>300mm

3. Filling edges of Difference Before and after

bituminous surfaces and more than (-) monsoons and as
replenishing/ lowering 50mm/ (+) and when
earthen/ hard shoulders 0mm required i. e.
when the
requirements as
specified are
exceeded as per
Col. 3

4. Dressing of berms Before and after

monsoon and
once in between
i.e. February/
March, June,
August and
September

5. Restoration of rain cuts September and as

and side slopes and when
required

6. Cleaning of Cross-
Drainages

Debris and silt reducing Blocked by 14 days Twice (May and

effectiveness of more than October) and as
structure, broken or one-fourth of and when
cracked structure the size of required i.e.
causing instability, under the culvert blockade more
mining or not than one-fourth

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 functioning properly opening of the opening

Deformation of culvert, 45 days and

its invert and alignment prior to
monsoon

7. While washing of Twice (April and

Parapets, Guide Stones, October)
Tree Trunks etc.

8. Re-fixing disturbed Once and as and

caution boards, other when required
signage etc.

9. Re-fixing displaced Km. Once and as and

stones, 200m stones, when required
guard stones, guard rails

10. Cutting of branches of Once (October)

trees, pruning shrubs

11. Removing wild seasonal Twice (March and

growth on berms and September)
from road side
structures

12. Painting of Km. stones, Once (April/

Numbering of culverts, November)
Road markings etc.
including history of road
on Km. stones

13. Maintenance of T & P All round the year

14. Removal of All round the year

encroachment

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 ANNUAL CALENDER OF ROAD MAINTENANCE ACTIVITIES (Periodical Maintenance)
Sr. Item of Work Intervention Response Frequency Cost
No. Standard Time

1 2 3 4 5 6

Resurfacing the After the expiry

pavement of design life and
surface with a according to As and when
1. Surface dressing
single evaluation of required
bituminous pavement
surface dressingstructure
After the expiry
New single of design life and
surface
according to As and when
2. Spot rehabilitation treatment by
scarifying the evaluation of required
old surface pavement
structure
After the expiry
Resurfacing and of design life and
reshaping the according to As and when
3. Overlay
surface with BM evaluation of required
and BC pavement
structure

ANNUAL CALENDER OF ROAD MAINTENANCE ACTIVITIES (Emergency/special Maintenance)

Sr. Item of Work Intervention Response Frequency Cost
No. Standard Time

1 2 3 4 5 6

As and when
Constructing temporary causes As and when
1. Immediate
bridge structures hazardous to required
traffic
As and when
causes As and when
2. Flood debris removal Immediate
hazardous to required
traffic
As and when
Repair of settlement and causes As and when
3. Immediate
land slides hazardous to required
traffic
As and when
Removal of materials like causes As and when
4. Immediate
soil, rock, boulders, etc. hazardous to required
traffice

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 ANNUAL CALENDER OF ROAD MAINTENANCE ACTIVITIES (Upgradation)
Sr. Item of Work Intervention Response Frequency Cost
No. Standard Time

1 2 3 4 5 6

Major restoration or As and when

upgrading of the pavement maintenance
As and when
1. through reconstruction to cost exceeds the Immediate
required
rectify structural permissible unit
deficiencies cost

3. Overall responsibility for efficient planning management and

delivery of rural road maintenance shall be vested with PIUs
&KSRRDA including coordination with LSGD. A dedicated
Planning, Budgeting and Monitoring (PBM) Unit, in the KSRRDA
Head Quarters to be headed by a Superintending Engineer,which
shall be responsible for Planning, Budgeting and Monitoring of all
maintenance works of the road network under the overall
guidance of the Chief Engineer, LSGD

4. To ensure allocation of adequate and timely availability of funds

needed for maintenance of rural roads as per Annual Maintenance
Plans, prepared by the Section offices/PIU, the committee would
allocate the fund every financial year as obtained below.
Maintenance fund
required to be
Sl Financial
released(Crores)
No year
Total of column no:6
of Table1
1 Routine Maintenance
2 Periodic Maintenance
3 Emergency /Special Maintenance
4 Upgradation

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 Chapter 3
Adequate Funding
An analysis of the current financial scenario on road
maintenance in the state of Kerala reveals that there is a serious gap
between the funds required and those allocated for rural roads. It is
estimated that the funds available represent only 25% of that
required. As a result, roads have been deteriorating fast and the
backlog of periodic maintenance has been mounting, if sufficient
funds are not allotted in time.
Funds also have to be identified for bringing the existing roads
–in the DRRP- to the maintainable condition, their rehabilitation costs
will be very high and beyond the resources in sight.
A time bound implementation plan for this is urgently required
for ensuring the availability of funds for the maintenance of PMGSY
roads after the responsibility of the contractors ceases five years after
construction.
To decide on annual allocation of funds for maintenance of
different categories of roads with reasonable share for rural roads
based on the percentage of rural roads with respect to the total road
network a Standing Empowered Committee (SEC) would be
constituted comprise of Additional Chief Secretary Finance, Principal
Secretary (LSGD), CE LSGD, CE KERRDA, SE KSRRDA. While
deciding the distribution of funds due consideration shall be given to
the average traffic plying on different categories of roads, their
importance and the initial investments made in the construction of
these roads.
A dedicated road maintenance fund shall be established with
money received/ collected from various source such as Central, State

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Government and local bodies as approved by the State Government
to provide funds on a sustainable and dependable basis for
maintenance of rural roads. An approximate amount required for
maintenance per district per year is attached as - A (page-83).
LSGD with the approval of finance department shall formulate
the necessary rules for setting up the funds crediting of various
moneys thereto, drawal expenditure from the fund, maintenance of
accounts and audit thereof for the proper operation of the fund.
In order to formulate an Action Plan for time bound removal of
maintenance backlog of the rural road network to an acceptable level
of service. On the basis of road condition and reports generated
through Road Maintenance &Management System (RMMS), the State
shall identify backlog &remove it in the period of 5 years in a phased
manner and the funds made available. See Box 4
Box 4:
Tarred Rural Roads in the state:
PMGSY

1. Very good and good roads: inkms

2. Fair roads: in kms
3. Poor & very poor: inkms
Total: inkms

ODR
1. Very good and good roads: inkms
2. Fair roads: inkms
3. Poor & very poor: inkms
Total: inkms

VR
1. Very good and good roads: inkms
2. Fair roads: inkms
3. Poor & very poor: inkms
Total: inkms

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 UnTarred Rural Roads in the state:
VR

1. Very good and good roads: inkms

2. Fair roads: inkms
3. Poor & very poor: inkms
Total: inkms
Based on PCI,which is a road condition
survey, the above classification is made and
the kilometres are tabulated.

1. Periodic Renewal Requirement:

2. Backlog of Periodic Maintenance
3. Requirement for Routine Maintenance
4. Emergency and special repair

Total fund requirement = Total requirement of Periodic

Renewal+ backlog of Periodic Renewal + Routine
Maintenance+ Special repair.

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 Chapter 4
Institutional Reforms

Currently, the organizations involved in execution of rural roads in

Kerala State are the Kerala Rural Roads Development agency
(KSRRDA) under Local Self Government Department (LSGD) at the
state level. In respect of non-PMGSY rural roads, programmes are
administered by Local Self Government Department (LSGD) through
PRI’s.
The KSRRDA has been created for the purpose of implementing the
PMGSY. Its role in maintenance is currently limited to the supervision
of the roads constructed under the programme during the initial five
years after construction.
Kerala has fully fledged 3-tier Panchayat Raj Institutions. The first tier
is the village Panchayat, the second tier is the Block Panchayat and
the third tier is the District or Jila Panchayat. Local development
works in rural areas are carried out by these LSGIs through the Local
Self government engineering Department (LSGD) . Services of
Executive Engineer are available at District Panchayat, services of
Assistant Executive Engineer are available in Block panchayat and
services of Assistant Engineer are available in village panchayat.
The responsibility of developing a maintenance strategy for the rural
roadnetwork within the district is vested with District Panchayath with
support of district Piu’s including all the management &planning
activities of the entire rural road net work.
The Kerala State Rural Roads Development Agency at the state level
could embrace the following functions:

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(i) Support in the Jilla panchayats and technical agencies at the
District level in capacity building, management, planning and
operations;
(ii) communicate with the funding agency;
(iii) monitor the performance of districts and support them in
improving performance;
(iv) recommend or set planning guidelines and standards, and
(v) research and development on management and operations.
(vi) Co-ordinate with agencies responsible for other categories of
roads
LSGD shall institute an annual performance evaluation system to
inform the government about the delivery of maintenance and
condition of the rural road network as a result of funds allocated for
the purpose.
LSGD shall simplify the existing Road Maintenance &Management
System (RMMS)for rural roads to prepare Annual Maintenance Plans
for each Section/PIU office based on scientific condition assessment
of the road network.
Set up Special Zonal Task Forces in each section to deal with
emergency situations arising due to natural disasters headed by
Chief Engineer, SE of the Zone and concerned SE of the Circle as
members
The Section/PIU office shall collect/outsource the collection of road
condition data and inventory data and capture the condition of roads
through photographs/ videography (having longitude &latitude) of
location and such details shall be uploaded suitably on the RMMS on
department website.
Some pilot works of maintenance shall be undertaken jointly by
District PIU and relevant block/gram panchayat and steadily move
towards devolving maintenance responsibility in respect of rural
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roads to Panchayati Raj Institutions. Similar pilot project shall be
undertaken with the involvement of local community participation.

Simple formats for inventory and road condition data have been
evolved for adoption in the case of low volume roads that can help in
planning and identification of maintenance interventions. It needs to
be borne in mind that this system must be simple and should not
involve much time and effort in data collection and analysis.

Stretches of road showing signs of distress such as hungry surface,

hairline cracking, ravelling and other damage should have the
highest priority for inclusion in the renewal programme.

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 Chapter 5
Implementation Efficiency

It bears repetition that in the matter of maintenance, funds alone will

not do. Implementation is a much more critical issue. Clear lines of
responsibility need to be established. Operational capacity of the
road agencies has to be considerably improved and strengthened.
Critical requirements are:
(i) Strengthening the planning capacity to assess the condition of the
road network and identify, design and prioritise maintenance
activities;
(ii) Improving the ability of the road agencies to manage the
contracting process and supervise the work of contractors;
(iii) Improving the capacity of small contractors and gang labour to
undertake maintenance operations;
(iv) Developing technical expertise to evaluate the effectiveness of
current standards and practices;
(v) Undertaking technical and financial reporting and auditing.
Training shall form an integral part of Institutional strengthening of
the LSGD. For this LSGD shall formulate a calendar of training
programmes for its technical officers at various levels. These
training programmes shall include development and
dissemination of training modules covering all aspects of road
maintenance from planning to execution to monitoring of entire
maintenance activities. An in-house cadre of trainers shall be
developed for imparting training to the staff.
Training modules shall be developed for imparting
both on-site as well as off-site training to field staff. Training
programmes shall also include study tours aimed at exposing
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officials to national/ international best practices.
LSGD shall extend support in providing outreach
programmes in enhancing the training facilities for Class C and
Class D contractors in implementation of maintenance works. For
this, the contractor’s associations shall be associated to work out
the details of training modules, training providers including on-
the-job exposures in close association with the road agencies. Such
modules could be in the form of booklets / hand-outs in various
maintenance operations as also in audio-visual mode.
The LSGD shall identify and pilot innovative
maintenance models and technologies. These innovations shall be
in the form of piloting and adopting different models of outsourcing
maintenance works which could be in the form of Performance
Based Maintenance Contracting (PBMC), Community Contracting
or a hybrid system involving combination of PBMC and
conventional Bill Of Quantities (BOQ). The thrust on innovative
technologies shall be on materials that can be used in all weather
conditions, reduce time and manpower required for repairs,
thereby improving productivity. The technology shall be cost
effective, easy to manage, off the shelf material for patch / pothole
repair and application with simple tools with all maintenance items
being accommodated in a small vehicle for speedy execution.
Possibility of adopting new techniques for pothole repairs such as
first time permanent repairs shall also be explored. Effort shall be
on environment friendly technologies.
The LSGD shall undertake road user satisfaction
surveys every three years on its rural road network and put the
result on the website.
Detailed guidelines for execution of maintenance policy
will be finalised by KSRRDA. The essential methods &
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procedures to assist in implementation of Annual Maintenance
Plans have been incorporated in these guidelines The
objectives & expectations from the maintenance work,
utilization of resources, responsibilities & functions of staff at
different level, procedures for contract management, quality
assurance, technical specifications, maximum response time
have been explained in these guidelines.
Necessary amendments may be made in the
provisions of the guidelines by the Government on the basis of
experiences.

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 Chapter 6
STAFFING

Organisational Setup
Local Self Government Department (LSGD) shall be responsible
for the operation and maintenance of the entire road network
under its jurisdiction. The administrative control of the
department shall wrest with the Secretary, LSGD Government of
Kerala. The Chief Engineer, LSGD would be overall in-charge of
the department. The construction and maintenance of the
network comprising Rural Roads shall be supervised by each
circle office headed by Superintending Engineer. The circles
are further divided in to field Divisions headed by an Executive
Engineer. The field Division offices have a number of sub
division offices headed by Assistant Executive Engineers. The
subdivision offices are having various Section/PIU offices
headed by Assistant Engineer.

A dedicated Planning, Budgeting and Monitoring (PBM) Unit in

the LSGD headed by a Superintending Engineer shall be
responsible for Planning, Budgeting and Monitoring of all
maintenance works of the road network under the overall
guidance of the Chief Engineer. This unit shall comprise of one
Executive Engineer, two Assistant Executive Engineers, four
Assistant Engineer, Draftsman and Computer Operators. The
Deputy Controller (F&A) shall assist the Superintending
Engineer of the PBM Unit in all financial matters.

Technical audit of sample stretches as well as the quality

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 inspections shall be conducted by the Quality Control wing of
the LSGD.

Local Self Government Department (LSGD), Government of

Kerala shall be responsible for the implementation of this Policy
through the Kerala State Rural Road Development Agency
(KSRRDA). The organisation set up for maintenance is as follows:
1. Planning Unit
(i) Survey and data base inventories
(ii) Prioritization
2. Delivery Unit
(i) Contract Procedures
(ii) Contract documentation
(iii) Contracting arrangement
(iv) Execution of works and supervision
3. Monitoring and supervision
(i) Monitoring
(ii) Review and Evaluation
(iii) Technical and Financial auditing

LSGD shall enable capacity building of its engineers, staff and other
human resources in modern technologies, Project implementation,
monitoring, supervision and quality testing and operation practices.

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 INTEGRATION OF LSGI’S AND PIU’S
For the maintenance activities the integration of LSGI’s and PIU’s can be can be
entrusted the following roles and functions
Level Role and function
District Panchayat (DP) 1.Ownership of ODR’s

2. Construction/Upgradation of ODR’s

3. Planning of maintenance of ODR’s for routine

maintenance such as pothole repairs with the data

retrived from GIS lab.

4. Prioritisation

5. Conducting traffic survey and road condition survey

Gram Panchayat(GP) 1. Selection of alignment

2. Maintenance of roads within the network and non

network roads except PMGSY roads

Program implementation unit 1. Selection of alignment from the PMGSY roads in

(PIU)
consultation with GP

2. Maintenance of PMGSY roads in the network

3. Periodical maintenance of PMGSY roads transferred

to District Panchayat

4. Road selected from District Panchayat and Gram

Panchayat to be upgraded/maintained under

PMGSY standards.

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 Chapter 7
PLANNING AND DESIGN
Maintenance Works will include all works of routine
maintenance, periodic maintenance, road rehabilitation including
pavement strengthening, special repairs and emergency
maintenances. The planning of various maintenance operations will
be correlated and looked upon as a total system rather than each
activity considered as isolation. Based on the condition evaluation, the
causes for the various defects should be examined in detail and a
decision to be taken whether to initiate a particular maintenance
activity. Section/PIU office shall establish guiding rules for
prioritization of road maintenance works, taking in to account the
evaluation carried out under this policy. Section/PIU office shall utilize
computerised road maintenance management and monitoring
systems for continuous monitoring of road condition and maintenance
requirements , implementation of road maintenance works and other
related activities
The PBM Unit shall initiate action on maintenance activities as under:
(i) Exercise for review of Yardstick Norms for routine
maintenance shall commence every year immediately after
rainy season and the process shall be completed by 31st
December. The norms as finalized shall be notified in the
second week of January. Even in case the norms do not
require any change the existing norms shall again be
notified by this date.
(ii) A yearly review of the rates of individual items involved
in maintenance activities shall be carried out by considering
the prevailing market rates as on 1stDecember of that year

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 and the review shall be completed by 31st December. The
rates so finalized shall be notified in the first week of January.

A Periodic Renewal cycle after design life shall be adopted for

all rural roads.
The Specifications to be adopted shall be CPWD
Specifications/MORD for State works and Ministry of Rural
Development (MoRD) Specifications for PMGSY works. In case
specification for a particular item in State Works are not
available MoRD specifications for Rural Roads shall be followed
and vice-versa.
The Field Units, namely, the Section/PIU offices shall be
responsible for carrying out the Road Inventory and Road
Condition Surveys as per prescribed procedures.
The road condition data survey at every 100 m interval shall be
carried out by the Overseers/Assistant Engineers in charge.
They may take the assistance of their Assistant Executive
Engineer. Their work shall be supervised by their Assistant
Executive Engineers and physically checked to the extent of
15% and accordingly certified. The road condition data shall be
collected through visual inspection. The Executive Engineers
posted in the PIU offices shall simultaneously carry out 10% test
check of the road condition data collected by the field units.
The schedule for the above activities shall be as under:
(i) The surveys shall commence Ist week of December shall be
completed by December 31st.
(ii) Data from the survey shall be uploaded on the Road
Maintenance Management System (RMMS)/Road
Management System (RMS)/Website of KSRRDA by the

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 Divisional Offices by 2nd week of January.
(iii) Results of the entire road network shall be generated by
KSRRDA the PMGSY HQ staff by the end of January.

LSGD shall prepare and finalize the priority list for Annual Road
Maintenance Operation Plan (AMOP)approved by the District
Panchayath based on the availability of fund for road maintenance,
accounting the condition of roads, bridges, culverts, road signs , road
appurtenances and disseminate the same to all field offices by the
15th February. The field Executive Engineers on receipt of the
approved AMOP shall have another verification carried out to confirm
that the roads appearing in the AMOP with respect to their jurisdiction
actually qualify for Periodic Renewal. Annual Maintenance calendar
shall be hoisted on departmental website by 15thMarch.

Field offices shall initiate action for preparing estimates and invite
bids for works proposed to be contracted out for the approved chain
ages of various roads immediately and works shall be awarded
accordingly.

Environmental Sustainability:
In development , construction and maintenance of road schemes in
rural areas its supporting infrastructure, appurtances, safety features
etc the department shall make best possible efforts to implement
technologies that are environmental friendly, have a low carbon
footprint and provide smooth access to all section of society,
including the disabled, in a safe manner. The department shall
amend/develop necessary codes and manuals to implement
construction and maintenance roads in an environmentally and
disabled friendly manner.

KSRRDA may prescribe procedures for testing and evaluation of

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various materials and technologies involved in road maintenance,
quality testing of in progress and finished works and as appropriate
and may specify practices or set up necessary testing facilities for the
same.
The Superintending Engineer KSRRDA shall closely monitor the
progress of the above activities in respect of their jurisdictions.

The Assistant Engineer/Overseer shall prepare monthly Maintenance

Plan of the roads and submit to the Assistant Executive Engineer
which should be forward to the Executive Engineer one week before
the commencement of the respective month for approval

Inventory and condition of roads and Traffic Surveys

1. LSGD/PIU shall maintain road inventory registers and road maps,
division wise of all the state rural roads in a suitable format duly
approved by the Chief Engineer, LSGD/KSRRDA. Such inventory
registers and maps may be prepared through outsourcing with
counter signature of field engineers.
2. The road registers referred in the sub rule 1 shall updated
regularly every year after conducting the road condition survey
by each executive Engineer of the District for the area under his
jurisdiction.
3. The LSGD/PIU shall be prepared to undertake traffic surveys of
road net work once in 2 years and road condition survey every
year immediately after the rainy season. Special attention shall be
given to the riding quality of the road and condition bridges and
culverts, road signs and other traffic control devices, status of
protection work and other assets within the right of way in
accordance with the guile lies laid down the IRC. The LSGD/PIU
shall prepare an annual maintenance operation plan

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 Procedure for formulation of annual maintenance operation
plan (ARMOP)
1. The KSRRDA shall formulate by end March every year, consistence
with road maintenance policy, and an annual road maintenance
operation plan (ARMOP), depending upon the computerized
RMMS which shall be supported by the road condition data. It will
identify the maintenance work on the State road network taking in
to account the inventory and conditions of road bridges, culverts,
road signs and other road appurtenances as per the asset
management system development by the Government.
2. The KSRRDA shall consider the annual road maintenance
operation plan taking in to account the available fund for road
maintenance
Implementation and keeping of records, audit , progress
reports and review
1. The Chief Engineer, LSGD shall be responsible for the
implementation of the ARMOP and he shall exercise all powers
delegated to him by the Government in planning, requirement,
execution and monitoring of the works included in the ARMOP.

2. The chief Engineer shall keep systematic accounts and records

and get them auditor in accordance with the State accounting
principals in such forms and to be furnished to the Government
in time but more later than September of the subsequent year.

3. Chief Engineer shall prepare the quarterly progress report,

division wise of all the maintenance work sanctioned form the
funds, for the quarter ending June, September, December and
March every year and such reports shall reach the Government
with in One month from the date of ending of each quarter.

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 Further Chief Engineer shall keep records of completion reports
of the maintenance work included in the ARMOP.

4. The Government in ties meeting convey from time to time will

review the progress as well as expenditure incurred on works.

Accounts and Audit:

1. The KSRRDA shall keep proper books and other records of

accounts in respect of the funds in accordance with the
accounting principal and standard norms and as may be
prescribed by the Government.

2. The account of the funds shall be audited annually by the

statutory auditor who shall also confirm, inter alia, whether :

a. Revenues allocated to the funds have been correctly

collected and paid in to the funds

b. The money from the funds has been utilized correctly in

the manner as provided in the rule 6

3. The Auditor shall complete the audit within 6 months of the

expiry of the financial year in which the audit is done and
shall send to LSGD , audited financial accounts and balance
sheets with a copy their of to the Government.

4. The LSGD may engage internal auditor / concurrent auditors

for the interim and concurrent Audit as it deems fit.

5. The accounts of LSGD shall also be audited by comptroller

and Auditor General (C&AG) of India , the CAG shall as soon
as possible after completion of audit send LSGD separate
audit report (SAR) with a copy thereof to the Government
who shall place the same before the State Legislature.

Road user survey

1. LSGD shall organize road user survey once in three year as

per directions to assess level of satisfaction of road users and

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 document the same in a format evolved as per the asset
management system .

2. The feedback received from the road users either based on

the biannual surveys or otherwise shall be taken in to account
in improving the performance of the maintenance of the
road network

Page 48 of 83
 Chapter 8
INSPECTION
Duties

Attention of all officers/officials of the Department is drawn to the

imperative necessity for the maintenance of the roads under their
jurisdiction. In order to maintain the roads efficiently and
economically, officers/officials in-charge of the roads must exercise
the greatest care to see that money and materials are used with
caution and financial prudence. To achieve this, frequent inspections
are necessary and in this connection the following broad principles
are laid down:

(i) The Assistant Engineer/Overseer shall keep a strict watch on

the condition of the entire stretch of road under his beat and
cover the same daily.

(ii) The Overseer incharge shall inspect the entire road length
under his jurisdiction at least once every week. He shall
simultaneously verify at site the contents of the Daily
Progress Report as maintained in his dairy and initial the
same
(iii) The Assistant Engineer in charge of the road shall ordinarily
travel at the rate of 30 Km. per day and inspect the entire
length under his jurisdiction at least once every month. He
shall invariably be accompanied by the Overseer incharge to
whom he can give the necessary directions for repairs.
(iv) The Assistant Executive Engineer and Executive Engineer
shall also arrange to travel only moderate distance each day
and shall be accompanied by the Accredited Engineer in
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 charge. He shall inspect all the roads under his jurisdiction
once every three months.
(v) The Superintending Engineer shall, whenever possible,
be accompanied by the Executive Engineer. He shall plan his
visit through alternate routes rather than following only the
regular and direct route while proceeding/coming back from
tour. This is necessary to ensure that alternate routes/interior
roads get inspected even when the purpose/destination for the
tour may be different. It may, therefore, be ensured that the
officer does not undertake to and fro journey through the same
route. He shall travel on alternate route on one or another
journey.

(vi) Every effort should be made to issue instructions verbally

and with personnel consultation supplemented by notes in
the notebook of the person to whom orders are given. This
procedure will save time in writing long inspection notes.
(vii) Superintending Engineer should be able to supplement
the notes given in the notebooks with more precise orders.

(viii) From the point of view of safety of traffic, as well as from

the point of view of safety of road structures, it is essential to pay
special attention to the maintenance of road berms. The
Inspecting officers should make special note of the condition of
the berms and their improvement since the last inspection and
record the same in the notebook of the Overseer and the
Accredited Engineers.

(ix) The Superintending Engineer shall also inspect the roads

from overall road safety considerations and give appropriate
directions
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 Duties of overseer
(i) To report to Assistant Engineer.

(ii) To help in the layout, marking, checking the quality and

quantity of work done by the labour and get the work
executed as per instructions.

(iii) To assist the Assistant Engineer in taking out the

measurement for daily work done.

(iv) To display necessary caution boards for safety point of view

as per standard layout.

(v) To report to his senior about any causality, accident,

encroachment of Government property or any type of serious
damage to the Government property within his beat.

(vi) To maintain sign boards under his charge.

(vii) To report about damages to structures, kilometre stone etc.

and keeping them in position.

(viii) To comply with any instruction given by his immediate

superior.

(ix) To ensure providing and proper upkeep of diversions.

(x) To maintain daily diary of the work done and to put up to

the Section/PIU in charge every alternate day.

(xi) To maintain daily receipt/daily consumption of material

consumed.
(xii) To help in preparing estimates for minor works and
repairs.
(xiii) To ensure execution of work according to specifications
and drawings.
(xiv) To take round of various bridges and roads under his
charge on regular basis and report to Section/PIU

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 incharge about repairs to be done. He shall also assist to
plan out a programme for such repairs in advance and
ensure their execution through the department
(xv) To estimate and indicate rough quantities of materials
required
(xvi) To take measurement of daily work done.
(xvii) To report about unauthorized constructions and
encroachments on government premises.
(xviii) To comply with the instructions given to him by his
immediate officer.
(xix) To ensure submission of daily report.

(xx) To see that log books are filled daily for machinery and
that machinery are parked properly.
(xxi) To maintain details of land width and check
encroachments.
(xxii) To ensure proper maintenance of speed humps and
caution boards including their painting.
(xxii) Inspection and supervision of works as per prescribed
norms.
(xxiii) Reporting observations to higher authorities.
(xxiv) Preparing estimates for repairs after conducting condition
survey of roads.
(xxv) Reporting about closure of road/obstructions due to any of
the following reasons;
Over toping/breach;
Landslides;
Earth quakes;
Accident;
Any other reason (specify);
(xxvi) Enumerating safety measures and restoration works in
case of flood damages and breaches and reports on
opening of traffic/completion of restoration.

Duties of Assistant Engineers

(i) Inspection and supervision of works as per norms.

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 (ii) Reporting observations which suggestion for remedial action
to higher authorities.

(iii) Getting estimate prepared and checked after conducting

surveys and site investigations.

(iv) Reporting about heavy rain fall in the area and consequent
rain damage.

(v) Enumerating action on the report of Engineering

subordinates regarding obstructions, accidents etc.

(vi) Enumerating safety measures and restoration of (both

temporary and permanent) works in case of flood damages
and breaches.

Duties of Assistant Executive Engineers

1. Controlling and overseeing the work of subordinate staff.

2. Inspection and recording of observations as per prescribed

norms.
3.Scrutiny of estimates and Revised Estimates: Any modification in
the provisions in an estimate received from the subordinate
office shall be made only after the specific orders of the head of
the office.
4. Any other work entrusted by the head of office.

Duties of Executive Engineers

1. Planning and finalization of nature of maintenance activities
e.g. surface repair, prepare to CD works etc.
2. Finalizing action on reports of Assistant Executive Engineers
and also on safety measures, diversion in case of breaches and
flood damages.
3. Coordination with various agencies like Traffic Police, Local
Administration, Publicity Media etc., in case of emergent
repair, interruption to traffic by road blockage, etc.

4. Initiate steps for finalizing permanent restoration works.

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 Action to be taken in case the road is Breached or Blocked

Action to be taken by the Overseer

• Immediate report of the road breach/blocked will be made to
Assistant Engineer. The following points will be included in the
reports:
(i) Name of the road
(ii) Location of the breach/blockade
(iii) Length and nature of the breach/blockade
(iv) Date and time of occurrence
(v) Assessment of the assistance in the form of men
and material required
• “Road closed” boards and “Diversions” boards shall be
fixed on both sides at 60 m distance in advance of the hazard
• Arrangements for red lights to be done in case of darkness
• Labour shall be deputed to guide the traffic to prevent any
accident
• Construction of diversion, if possible

Action to be taken by the Assistant Engineer

• He will at once visit the site of the hazard and shall

ensure that:
 Road has been closed by means of
barricading with empty drums or any other means
available at site.
 That caution and diversion boards have been
fixed on both sides
 Arrangements made to guide the traffic by
posting gang men having red flags
 Arrangements made for red lights and
chowkidar etc.
 Steps to stop further damage to the road
are taken as per site requirement
 Possibilities of construction of diversion to be
explored. If possible the diversion should be
constructed with available resources
 He shall immediately report to the Assistant
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 Executive Engineer, Executive Engineer and
Superintending Engineer through fax regarding
the road breach, duration of blockade of the
traffic followed by a detailed report containing:
(i) Name of the road
(ii) Location of the breach/blockade
(iii) Length and average depth of the
breach
(iv) Date and time of occurrence
(v) Duration of suspension of traffic
(vi) Requirement of men and material for
restoration of traffic and road and
the approximate cost
(vii) All arrangements and efforts shall be
made for restoration of traffic
(viii) He will intimate the details of any losses
and injuries to the public, if any, including
the extent of compensation if payable
Action to be taken by the Assistant Executive Engineer
(a) He shall at once inspect the site of the hazard
(b) He shall inspect all safety measures taken by the Assistant
Engineer
(c)He shall ensure that the restoration of traffic is done at the
earliest
(d) He shall send a detailed report regarding the breach
blockade enumerating all the points .
(e) In addition to these he will also include the following
points:
(i) The causes of the breach/blockade
(ii) Forecast estimate for restoration of traffic and road
(iii) Remedial measures to avoid any future occurrence
with forecast estimates
(iv) Any other information which he wants to include

Action to be taken by the Executive Engineer

(a) He shall at once visit the site of breach. In case of

multiple occurrences, he will inspect them in order of
priority and importance
(b) He shall ensure speedy restoration of traffic
(c) He shall send a detailed report to the
Superintending Engineer and Chief Engineer
Page 55 of 83
 about the road damage indicating:
i. Nature and cause of damage with location
ii. Proposals for remedial measures with financial
implications
iii. Nature and course of consequential damages to
public properties etc.
iv. Action taken for restoration of traffic and
restoration of damages with financial implications
(d) He shall be fully responsible for all the action taken for
the protection and safety of traffic and road

MOBILE BASED APPLICATION

Mobile based application technology shall be adopted

for the maintenance purpose with the assistance of the
centralized GIS lab facility. LSGI’s/PIU’s should capture
the photographs of the condition of the road in the
network of roads while performing the pavement
condition survey for fixing up the priorities. Using the
mobile application as and when required the
photographs is captured at site and uploaded
simultaneously to the server. The parameters
attributing to routine maintenance activities can be
managed from the State office.

For the prompt attention to such repairs use of mobile

maintenance unit in each district is to be established.
One mobile unit may cost around 30 lakhs. It can look
after the maintenance of 200 km of road.

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 Chapter 9
EXECUTION OF MAINTENANCE OPERATIONS
Safety of Workers and Road Users During Maintenance

(I) In the implementation of maintenance operations, the road

user and personnel involved in the work shall not be
exposed to hazards. Besides, delay and inconvenience to
the traffic should be reduced to the
minimum.
(II) Traffic hazard and inconvenience be minimized by use of
temporary road signs and controlling/guiding of the
traffic.
(III) Maintenance operations should at a time be confined to
small lengths say 30m in half the pavement width, leaving
the other half for use by traffic.

Output of labour

(I) There should be no ambiguity regarding duties

assigned to the supervisory staff so that there is full
coordination while identifying jobs and giving direction to
the labour. In this connection, the duties of Mates/Work
Inspector have been spelt out elsewhere in this document.
(II) The gang men must fully know the tasks they are to
carryout and the expected output.
(III) There should be regular checking whether the task
assigned and output achieved are as per norms.

All works (no work to be recorded as unsusceptible to

measurements) executed by the labour both casual and
regular shall be measured and entered in the Measurement
Book (MB)and if the progress is less thanthe norms then
proportionate recovery shall be made orthe wages
shall be reduced accordingly by the Assistant Engineer
responsible for making payment.

(IV) The recommended tasks for labour are given as under:

Table-2
Page 57 of 83
 Sr. Task Norms
No.

Earth work such as in berms, de-silting of

1. drains
etc.

(a) Ordinary soil 2.5 Cum/person/day

(b) Hard soil 1.75 Cum/person/day

2. Dressing of berms 75Sqm/person/day

3. Jungle clearance 100Sqm/Person/Day

4. Patching with premix carpet 0.75 cum/Person/Day

5. WBM patching 0.30 Cum/Person/Day

6. Blinding of WBM surface 150Sqm/Person/Day

7. Edge covering 60 m/Person/Day

8. Side slope/shoulder repair 2.0 Cum/Person/Day

9. Maintenance of drains 125 RM/Person/Day

White washing of parapets, tree trunks,

10. breast 30Sqm/Person/Day
walls etc.

Other items as per norms worked out from

11. Schedule of Rates (SOR)

Note:
The quantity mentioned is that of grit and blast used for patch repairs.

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 (V) For the purpose of monitoring the progress of these works
the overseer/Assistant Engineer will exercise 100% test
check in each work and Assistant Executive
Engineer/Executive Engineer respectively upto 30 and
10%.
(VII) Instead of deploying labour in a scattered manner,
deployment shall be made in gang who will take up work
from one and move progressively towards the other ends.
(VIII) In order to ensure continuous maintenance of roads and
availability of some labour even on Sundays to attend to
any emergent job, it shall be expedient to stagger week-
end holidays to them, whereas casual daily wage workers
shall be allowed weekly rest on Sundays and Work
Charged/regular labour shall be given weekly holiday on
Mondays.
Material Procurement

(I) Material used for maintenance of paved roads is

bitumen/emulsion and aggregate
(II) Bitumen/emulsion shall be procured and stored
centrally along with cement required for other repairs

(III) Aggregate and sand shall be collected at site of

work as per requirement
(IV) The procurement of above materials shall be made as
per the Annual Calendar of Road Maintenance Activities
shown elsewhere in this document

Mechanical Equipment

 Arrangement for mechanical equipment such as road

roller, Mini Hot Mix Plant, if proposed, to be deployed
shall be made well in time keeping in view the Annual
Calendar of Road Maintenance Activities

Tools and Plants

 The requirements of tools and plants in good condition
for one gang for 20 Km. beat having 5 Gang men and
one Mate shall normally be as shown in Table:

Page 59 of 83
Sr. Item Essential Quantity Option with A.E.
No. (With Gangs) (Nos.) incharge (Nos.)

1. Spades 3

2. Pan (parat) 3

3. Pick Axes 2

4. Axe 1

5. Wheel barrow 3

6. Tar Sprinklers (Jharnas) 1

7. Tar Buckets 1

8. Tar boiler (mini) 1

9. Brushes

(a) Wire 5

(b) Coir 5

(c) Hair 5

10. Hammer 1

11. Rope

12 mm 1

6mm 1

Cross Slope Template for

12. berms 1
(camber 3 percent)

13. Tar thermometer

4

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14. Spring Balance 1

15. Tape 15 mtr. 1

Measuring wooden boxes

16. (35cm x 2
25cm x 40cm)

17. G.I. Bucket 1

18. Straight edge 1

19. Caution board 2

Page 61 of 83
 Chapter 10
MONITORING

In order to ensure the desired progress in terms of physical and

financial targets, it is essential to keep a close watch through
monitoring of returns as well as through online monitoring.
Superintending Engineer KSRRDA shall ensure that there is
proper monitoring of all maintenance activities. He shall monitor the
physical and financial performance through quarterly returns to be
submitted to him by the Executive Engineers in the format as per
Table-4 (Routine Maintenance), Table-5 (Periodic Renewal) and Table-
6 (Special Repairs/Flood Damage Repairs) by the 15th day of the
calendar month immediately succeeding the quarter under report:
Table-4
Financial Progress of Routine Maintenance
Name of Division/PIU:

Name of Sub- Division/PIU:

Length Budget Routine Maintenance Remarks

of Allotment
road (Rs. Lacs) (All in Rs. Lacs)

Name of (km)
Expenditure Expenditure Cumulative
road up to last during the Expenditure
Quarter Quarter under during the
review year

Note: The Executive Engineer shall certify that financial figures given are as per the Register
of Works (CPWA-41) corresponding to Works Abstract (CPWA-34)

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 Table-5
Physical and Financial Progress of Periodic Maintenance
Name of Division/PIU: -
Name of Sub-Division/PIU: -
Name of Road Jo Sanctione Sanctione Achievement upto Target for current Achievement Achievement during
b d Length d Amount last Financial Year Financial Year during the year the quarter
No (in Km.) (Rs. Lacs.) upto last quarter
. Physical Financi Physic Financi Physica Financi Physical Financial
(in Km.) al (Rs. al al (Rs. l al (Rs. (in Km.) (Rs. Lacs)
Lacs) (in Lacs) (in Km.) Lacs)
Km.)
1 2 3 4 5 6 7 8 9 10 11 12

Cumulative Achievement Overall upto date Likely date Remarks

during the year Achievement of
Physical Financial Physical Financial Completion
(in Km.) (in Rs. Lacs) (in Km.) (in Rs.
Lacs)
13 14 15 16 17 18

Note: The Executive Engineer shall certify that financial figures given are as per the Register of Works (CPWA-41) corresponding to Works
Abstract (CPWA-34)
Page 63 of 83
 Table-6
Physical and Financial Progress of Special Repairs/Flood Damage Repairs
Name of Division/PIU: -
Name of Sub-Division/PIU: -
Name of Road Jo Type of Sanctione Achievement upto Target for current Achievement Achievement during
b Repair d Amount last Financial Year Financial Year during the year the quarter
No (Rs. Lacs.) upto last quarter
. Physical Financi Physic Financi Physica Financi Physical Financial
(Km./%a al (Rs. al al (Rs. l al (Rs. (Km./ (Rs. Lacs)
ge/ No.) Lacs) (Km./ Lacs) (Km./ Lacs) %age/
%age/ %age/ No.)
No.) No.)
1 2 3 4 5 6 7 8 9 10 11 12

Cumulative Achievement Overall upto date Likely date Remarks

during the year Achievement of
Physical Financial Physical Financial Completion
(Km./%age/ (in Rs. Lacs) (Km./%age (in Rs. Lacs)
No.) / No.)
13 14 15 16 17 18

Note: The Executive Engineer shall certify that financial figures given are as per the Register of Works (CPWA-41) corresponding to Works abstract
(CPWA-34)
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Superintending Engineer, KSRRDA will submit to Standing Empowered
Committee the following details.
Maintenance Actual Expenditure
Sl Financial fund release of during the
Remarks
No year Proposed fund during financial
during the FY the FY year
Routine
1
Maintenance
Periodic
2
Maintenance
Emergency
3 /Special
Maintenance
4 Upgradation

PAVEMENT CONDITION INDEX (PCI)

PCI is a road condition survey, on a rating scale of 1 to 5 is used for
fixing prioritisation/selection of road for up gradation as well as
maintenance.
Methods suggested for determining PCI as per Operations Manual for
rural roads are:
1. Measurement based on Visual Inspection
2. Based on Riding Comfort
3. Based on Comfortable Driving speed possible
1. Measurement based on visual inspection

An experienced engineer can rate the PCI by visual inspection of the

pavement for each kilometre; a PCI of 1 to 5 is adopted as under:
Description of the surface PCI
condition
Very Good 5
Good 4
Fair 3
Poor 2
Very Poor 1

2. Based on Riding Comfort

A jeep or car is driven at 50km/hr and the riding comfort noted for
each kilometre. Based on the ‘riding comfort’ while driving at the
design speed of 50km/hr, the PCI is assessed as under.

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 Riding comfort at 50km/hr PCI
Smooth and pleasant ride 5
Comfortable 4
Slightly uncomfortable 3
Rough and Bumpy 2
Dangerous 1

3. Based on comfortable Driving Speed possible

The driver is instructed to drive at the most comfortable and safe
speed possible on the road. The PCI then assessed for each kilometre
based on the Normal Driving Speed as under:

Normal driving Speed PCI

Over 40 km/hr 5
30 to 40 km/hr 4
20 to 30 Km/hr 3
10 to 20 Km/hr 2
Less than 10 km/hr 1

Determination of PCI for a road

Inorder to get the PCI of the road, the arithmetic mean of the
condition of the road assessed for each kilometer is taken if the
kilometer – wise PCI is varying within a small range. However if the
variation of the PCI is large from section to section of the road under
consideration, the road is to be divided in to homogeneous sections
and arithmetic mean of PCI is taken for each section. The road
condition survey result will first be entered in to the PCI register in the
following format.

Pavement Condition Index [PCI] Data Entered

Target for PCI Length
PCI Data
Data to Enter with PCI Yearwise Length
Entered for
Sr Value
.N Numbe
Num
o. r of Total 2014 2015 2016
ber of Total
Dist Rural Leng 1 2 3 4 5 - - -
Road Length
rict Route th 2015 2016 2017
s
Roads

Page 66 of 83
 Note:
1. 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
the PCI is less than 2) will not be taken for upgradation.
Comprehensive Upgradation cum Consolidation Priority Lists
(CUCPL)
• The Comprehensive Upgradation cum Consolidation Priority
Lists (CUCPL) will be prepared District-wise or Block-wise as the
case may be on the following proforma:-

Name Total
Averag
of Year Ave population
e per
throug Year of rage of the
Road Prese Utili km
Bl h of last PCI Habitation
code nt ty mainte
oc route const perio and s served
in surfac Valu nance
k / ructi dic year by road
DRRP e type e exp. In
Major on rene of directly
last 3
Link wal PCI and
years
route indirectly

• Roads catering to large populations by connecting populations

over a large area and which act as collectors of traffic from
smaller roads, would be treated as Through routes .Such roads
would provide access to growth centers and pass through or
terminate in a Rural Hub

Cumulative score of the rural Growth Centres in

the road
Utilityvalue= ________________________________________________
Proposed road length for upgradation.

When two candidate roads are found to have the same Utility Value,
the population served by the road directly and indirectly by other
connected link roads is to be computed and treating population as a
proxy to the traffic, whichever road is found to be serving more
people would get the preference.

 The roads will be ranked by utility value Block-wise.

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 Annual proposals will be made from this list in order of ranking,
subject to qualifying the PCI and maintenance criteria.
 After the initial CUCPL is prepared and verified, it shall be
placed before the District Panchayat.
 The Members of Parliament / MLAs shall be given a copy of the
CUCPL and their suggestions and suggestions of lower level
Panchayati Institutions shall be given the fullest consideration by
the District Panchayat while according its approval.
 It is suggested that at least 15 clear days may be given for the
purpose.
 The approved CUCPL shall be the basis of all upgradation
proposals.
 Such proposals that cannot be included would be communicated
in writing to Members of Parliament /Members of Legislative
Assembly with reasons for non-inclusion in each case.
 The list of road works to be taken up will be finalised each year
by the District Panchayat from the updated CUCPL in accordance
with the allocation of funds communicated to the District.
 The District Panchayat shall finalise the list through a consultative
process involving lower level Panchayati institutions and elected
representatives. It must be ensured that the proposed road works
are part of the updated DRRP.
 No roadwork shall be included in the CUCPL unless it forms part of
the approved DRRP.

Page 68 of 83
 IDENTIFICATION OF GROWTH CENTRES AND RURAL HUBS

Growth centres are habitations which have a high population, high

level of educational facilities, good health service facilities, good
agricultural produce markets (mandis), are well served by buses,
railways, are already electrified, have retail shops selling agricultural
inputs and items of daily consumption and postal facilities etc.
A ‘Rural Hub’ is a large Growth Centre, characterized by the fact that
it is connected to more than one Through Route (e.g. a T-junction or a
crossing) thus giving it a higher potential. These Growth Centres and
Rural Hubs help to ensure easy access to raw materials, labour inputs
etc. for off-farm activities and bring the benefits of economic growth to
the rural hinterland, including white goods, and passenger transport
vehicles, as well as electivity, telecom, internet and other
communication infrastructure etc.

A system of making shall be developed giving weightage as under:

WEIGHTAGE

Sub-
Category
Parameter category
Weight
weight/s
A. POPULATION (as per 2011 Census) 50
A score of 1 for each 150 population subject 50
to a maximum of 50
B. EDUCATIONAL FACILITIES 10
(Score of the highest category)
Primary School 2
Middle School 3
High School 5
Pre-University Course(PUC),/10+2 institute 7
ITI 8
Degree College 10
C. MEDICAL FACILITIES 7
(Score of the highest category)
Sub Centre / ANM Centre 2
Primary Health Centre (PHC) 4
Community Health Centre(CHC) / Bedded 7
Hospital (and referral for PHC patients)
D. VETERINARY FACILITIES 3
Veterinary Hospital 3
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E. TRANSPORT AND COMMUNICATION 15
INFRASTRUCTURE
Railway Station 4
Bus Stand 3
Notified Tourist Centres 2
Post- Telegraph Office, PCO/ 2
Bank/ Regional Rural Banks
One diesel / petrol authorized
Outlet 1
Additional Authorized Diesel 1
Outlet 1 1
Electric Sub Station 11 KVA 2 Electric Sub 1
Station above 11 KVA 1 1
F. MARKET FACILITIES (Cumulative Score) 12
Mandi (based on Turn Over) 7
Ware house/ cold storage 3
Retail shops selling 2
agricultural inputs and items of daily
consumption
G. ADMINISTRATIVE CENTRES 3
(Score of the Highest Category)
Panchayat HQ 1
Sub Tehsil 2
Tehsil/ Block headquarter 3
100 100
The following criteria for prioritisation can be adopted.
Priority Marks Scored
I >80
II 70-80
III 60-70
IV Below 60
Note:- 1. A Growth Centre is one which has one Through Route passing
through it (or terminating there). A Rural Hub is a Growth Centre which
is simultaneously on two Through Routes.
2. A road can be proposed to pass through an urban point or a point
on NH/SH/MDR, but scores of point/s so located should not be added,
through the entire length of such candidate road would be used while
determining Unit Value per unit length.

Page 70 of 83
 3. For more than one line passing through an eligible point, Growth
scores of the point can be added to compute score of each line.
4. For such mining centres/ Industrial hubs that sign anMoU with
SRRDA for maintenance, upto a score not exceeding 5 can be given
within the matrix.
5. A State which has Special Areas (being a Special Category state,
or areas like as identified under DDP, or falling in Schedule V Tribal
areas, or IAP districts; can have two matrices one as above and one for
the special areas. The second matrix can have different uniform weights
for sub-categories, without changing total weight of any category, and
in it the population unit score can be uniformly linked to any number
ranging between 100 to 150.
The Superintending Engineer shall hold review meeting with the
Divisional and Sub-Divisional officers before the 25th day of the
calendar month immediately succeeding the quarter under report and
send his report to the Chief Engineer Head Quarters by the 30th day of
the same month.
The Chief Engineer shall review the same and the comments of the
Zonal office shall be communicated to the Superintending Engineers
and the Executive Engineer by the 15th day of next month
The Planning, Budgeting and Monitoring (PBM) Cell shall review the
same and the comments of the head Quarter shall be communicated to
the Superintending Engineers and the Executive Engineer by the 20th
day of next month.
At Division level the Executive Engineers will review the physical and
financial progress on the above analogy on a monthly basis and hold a
review meeting with the Assistant Executive Engineer by the 12thday of
each succeeding month.

Page 71 of 83
 Chapter 11
FINANCIAL MANAGEMENT
The rules for keeping and rendering accounts and dealing with
financial transactions made in respect of works under State Head
shall be as per Public Works Accounts Code.
The Executive Engineer shall maintain cash books in respect of
all financial transactions.
All financial transactions made during the month shall be posted
monthly in the Register of Works from Works Abstract.
Before submission of the monthly account to the Accountant
General’s office the Register of Works shall be completed,
reviewed by the Executive Engineer and date initialled by him in
token of his having examined the entries and found to be correct.
The Register of Works shall serve as authentic record of
expenditure being made every month and finally the yearly
expenditure of maintenance incurred on each road as this
Register is to be maintained with a separate page devoted to
each road.
Works executed under the PMGSY programme would in addition
to above, be governed by the PMGSY Accounts Manual of
Maintenance Fund, by opening a separate Bank account for the
Maintenance Fund as per the provisions of this manual.
The demand for funds/Bank Authorization shall be made for
routine maintenance and periodic maintenance on separate
requisition forms devised by SRRDA for these maintenance
activities.
The Superintending Engineers and Executive Engineer of these

Page 72 of 83
Accounting Centers are authorized signatories for drawl and
disbursement of money. All authorized signatories operate on the
single bank account opened for Maintenance Fund.
Ledgers shall also be maintained in the SRRDA to keep a watch
on the expenditure.
The funds shall be released to these accounting centres by the
SRRDA through the system of Bank Authorization.
Year wise, Phase wise and Package wise ledger accounts shall be
maintained for accounting of periodic maintenance separately for
PMGSY (Regular) and World Bank funded Projects.
The funds shall be demanded by the Divisions on the basis of
actual bills. Monthly accounts shall be rendered by accounting
centres to SRRDA by the 5th of the following month for their
scrutiny and compilation on monthly basis.
Funds received for renewal and routine maintenance shall be
shown separately in the monthly accounts.
The Year wise, Phase wise and Package wise schedule of
expenditure shall be prepared separately for periodic renewal
and routine maintenance.
In case of maintenance work carried out through departmental
labour, the Executive Engineer shall demand Bank Authorization
for material payment and separate cheque shall be issued by the
Superintending Engineer/ Executive Engineer authorized for
issuing cheques to the concerned Executive Engineer for
accounting purpose in their accounts under appropriate heads.
The funds may consist of all or any of the following:
a) The allocation for maintenance of road from the consolidated
fund of the State under the Non- plan Head as prescribed by

Page 73 of 83
 the Government.
b) All money received for maintenance of roads for State roads as
per the Central Grants recommended/ awarded by the
Finance Commission from time to time.
c) Any other sum or grant may be decided from time to time for
the purpose of road maintenance by the Government
d) Any grant, aid, bequest, donation, gift, subscription, loan or
other sum lawfully received.
e) Any other income accruing for the fund remain un-committed
or unspent at the end of any financial year for any reasons
what so ever then such amounts shall continue to vest with the
fund and shall be available for utilization in the next financial
year.
Objectives of Road maintenance fund:
The fund shall be dedicated on a sustainable and dependable
basis for maintenance of roads in the State.
Achieve regular outline maintenance and timely repair works
thereby reduction of expenditure due to maintenance in the
initial state of damage.
Ensure priority for maintenance of the Core Road Network
Management of Fund:
The fund shall be administered and managed by KSRRDA in
accordance with the objectives of the Fund and these rules.
KSRRDA shall have the power to adopt detailed Operational
policies procedures to ensure proper maintenance of State
roads within the jurisdiction.
Utilization of Fund:
• Making payment to consultants and/or experts appointed

Page 74 of 83
 for providing advice and assistance in discharge of their
functions.
• Incurring expenditure on such emergency maintenance
work on State rural roads
• To provide road safety infrastructure signage and
equipments
• Providing support to Government in provision of way
bridges and other facilities for overload control of vehicles
on State rural roads.
• Expenditure on research, education and training to related
to maintenance of State rural roads.
• Meeting all expenses, cost and charges including fees
payable to the auditors.
• Making any other payment related to road maintenance
authorized by the Government.

Engagement consultant/ Experts for providing

assistance to Government:- The Government may engage
suitable experts for providing assistance or advice on any
matter as when required following the procedure of
competing bidding, specifying there remuneration, fees
and out of pocket expenses and other condition for research
person, keeping in view the nature assignment, it duration
and experience and qualifications of the person concerned.

Page 75 of 83
 Chapter 12
QUALITY ASSURANCE
The Quality Assurance activity, in order to be truly effective has
to ensure a progressively improved and uniform quality of the
finished work. Maintenance of quality has to be imbibed in the
minds of the contractor as well as the officials of the department.

The direct responsibility for ensuring proper quality of work as

per approved specifications for achieving the intended
performance rests with the field team of Executive Engineer,
Assistant Engineer and Junior Engineer. The Superintending
Engineer shall be overall responsible for management of Quality
System and Procedures for the works under his charge.
Responsibilities of the field staff

The broad responsibility of the staff and the Engineer-in-charge

will be as under:-
(i) To ensure that materials duly approved by the competent
authority are used in the work.
(ii) Wherever necessary the Executive Engineer shall approve the
sources for respective materials.
(iii) Samples of materials shall be approved by the Executive
Engineer.
(iv) To ensure that all the mandatory field and laboratory tests as
laid down in the specifications are carried out at appropriate
time and materials failing to conform to the required
specifications are promptly rejected and removed from site.
(v) As far as practicable all tests on materials shall be carried out
at the construction site in a field/Divisional laboratory, which
shall be set up under the control of the Executive Engineer. A

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 Junior Engineer of the Division with aptitude for testing shall
be selected by the Executive Engineer for manning the
laboratory. He shall be given training in the Central
Laboratory to familiarize with the various tests, and then
placed in charge of the field laboratory.
(vi) It will be incumbent upon the Executive Engineer to keep a
watch over regular testing of materials before making
payment at the stage of each running bill.
(vii) Samples for tests shall be taken mostly by the Junior Engineer,
or some by the Assistant Engineers. Samples for 10% of
mandatory tests shall be collected by the Executive Engineer.
10% of the field tests shall be gotdone by the Executive
Engineer in his presence.
(viii) A guard file shall be maintained at all work sites, with copies
of all inspection reports to-date.
(ix) Inspection Register, Site Order Book, Record of tests,
Hindrance Register, etc. shall be put up for entries and review
to every inspecting officer.
(x) The inspecting officers of the rank of Superintending Engineer
and above shall not confine themselves only to review of
progress, co-ordination and general matters, but shall also
inspect the work from quality Assurance aspects.
(xi) The Executive Engineer and Superintending Engineer shall
invariably review and sign the guard file of earlier inspections,
Inspection Register, Site Order Book, Register of tests carried
out, Hindrance Register etc.
(xii) The Executive Engineer shall ensure that the Assistant
Engineers and Junior Engineers, as well as the contractors’

Page 77 of 83
 supervisors in-charge are fully aware of the specifications and
method of execution of any new/fresh item of work to be taken
up in the next 2 weeks. The Assistant Engineer/Junior
Engineer/ Supervisor shall ensure that this important aspect is
not overlooked.
Quality Assurance set up at Circle Level
The Quality Assurance team with the Superintending Engineer of
the Circle as its head will comprise the Assistant Engineer (along
with his Junior Engineer for laboratory work), whose main job is
quality assurance. In order that the role of the Assistant Engineer
(QA) is effective in the process of Quality Assurance, the
following points are essential:
(i) The periodicity of visit of works should be such that the
process control at various stages is possible.
(ii) There should be minimum delay between inspection of work
and communication of inspection report to the field formation.
(iii) The Assistant Engineer (QA) shall carry out his tasks in a
manner that relates operationally to the quality specifications
and standards laid down for the work, and to the control
actions that can be applied to the construction process. Thus
the Assistant Engineer (QA) should assess those aspects which
are important to the overall quality of the finished work.
The functions of the Quality Assurance team at Circle level are to
check the compliance of Quality Assurance system by the field
units and to guide the field engineers in quality related aspects of
the work. For this purpose:
(iv) The Assistant Engineer (QA) shall carry out a minimum of 4
visits to works every month.

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 (ii) The Assistant Engineer (QA) shall prepare his program and
seek approval of the Superintending Engineer. The program
shall be sent to site in advance of inspection.
Such inspections by the QA team shall, however, not absolve the
responsibility of the Junior Engineer/Assistant
Engineer/Executive Engineer for accepting only quality work
from the contractor.
On the basis of his observations with regard to the quality of
works, general adherence to the quality assurance procedures
and the standard of progress, the Assistant Engineer (QA) shall
submit an overall assessment report to the Superintending
Engineer of the Circle. The Superintending Engineer shall
comment on the report with minimum delay. The Assistant
Engineer (QA) will then send the report to the Executive
Engineer concerned for compliance.

Quality Assurance set up at Zonal Level

Quality Assurance in Zones shall be looked after by the Zonal
Quality Assurance (QA) unit headed by the Superintending
Engineer.

The Zonal QA unit shall follow the guidelines and norms relating
to quality systems and procedures as laid down by the Engineer-
in-Chief/Chief Engineer from time to time. These Zonal QA units
shall function under the control of Chief Engineer who shall be
fully responsible for effective quality assurance in his Zone.
Chief Engineer set up

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The Chief Engineer shall have the overall responsibility of
constantly reviewing the existing quality assurance procedures
and updating them on the basis of feedback from the Quality
Assurance teams.

His unit shall carry out the functions of Zones (QA) teams for
works where no Superintending Engineer (QA) is posted.

Carry out investigations and enquiries with regard to quality

related aspects for specific works.

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 Chapter 13

MAINTENANCE OPERATIONS THROUGH

CONTRACTS
EPC (Engineering, Procurement and Construction) contracts
The Standard Operating Procedures as outlined in the previous
chapters shall be applicable for maintenance of the rural road
network in situations where maintenance works are outsourced
through normal BOQ contracts.
Performance Based Maintenance Contracts

The contractor shall follow the Annual Calendar of Routine

Maintenance activities using a different calendar to be adopted
has been specified in the Contract document.

The inspections to be conducted by the contractor or by his

authorized representative shall ensure that the Intervention
Period for undertaking maintenance measures to control defects
for adherence to the Performance Criteria for Defects shall be
strictly observed as per the Contract Agreement.

Assistant Engineer shall immediately report the closure of

road/obstruction due to any of the following reasons
(a) Over topping/breach
(b) Land slides
(c) Earth quakes
(d) Accident
(e) Any other reason such as dead animals, trees etc.
In case road is breached or blocked the contractor shall take
following action should be taken:

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(a) Immediate report of the road breach/blocked will be made
to Junior Engineer/ Assistant Engineer. The following points
will be included in the reports:
(i) Name of the road
(ii) Location of the breach/blockade
(iii) Length and nature of the breach/blockade
(iv) Date and time of occurrence
(v) Assessment of the assistance in the form of men and
material required
(b) “Road closed” boards and “Diversions” boards shall be fixed
on both sides at 60m distance in advance of the hazard

(c) Labour shall be deputed to guide the traffic to prevent any

accident till such time that alternate arrangements are made
by the department

Safety of Workers and Road Users during Maintenance

In the implementation of maintenance operations the
contractor shall ensure safety of workers and road users as
per this policy.

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 ANNEXURE-A

Amount required for maintenance of roads in each year per District

Work sanctioned from Phase III to Phase VIII under PMGSY-I for kerala
= 2961.039 kms

Maintenance cost for the first 5 years after construction of road

(Routine maintenance) = 2961.039 kms x 60 lakhs/km x 9%

=160 crore

Maintenance of roads to be carried out for 5 years with in the 10

year design life

=160 crore

Maintenance cost for resurfacing = 2961.039kms x 20 lakhs/km

=592.21 crore

Total cost for 11 year = 160 crore + 160 crore + 592.21 crore

= 912.21 crore

Total cost for 1 year= 912.21crore/11= 83 crore

Total cost for 1 year per District = 83 crore/14 districts

= 6 Crore/District

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