Problems in Road Infrastructure Development

1. Land Acquisition

Speedy land acquisition is crucial for timely completion of road projects. This is more important for implementation of major projects of NHDP which have a time bound programme for completion. In some States like Tamil Nadu, Maharashtra and Gujarat, it took a long time for acquiring the land. The delays are mainly due to preoccupation of competent authority appointed by State Governments with other works, frequent transfers of competent authorities and opposition from the land users.

2. Shifting of Utilities

Development of roads particularly 4- laning under NHDP sometimes require shifting/ relocation of utilities like electric lines, telephone lines and water pipes etc. Despite the entire allocation cost being met by NHAI and advance payments being made, there have been instances of inordinate delays.

3. Cutting of Trees

Improvement of NHs, particularly widening sometimes require cutting of trees in many reaches. Despite the payment of prescribed compensation for plantation of trees, approval for tree cutting has taken a lot of time in some States. Sometimes additional conditions are put which are difficult to implement.

4. Law and Order

There have been problem of law and order in some States which has affected the progress of NHDP. The problem of insurgency in some of the States of the North- East Region is also acute, which has adversely affected work on roads. There have also been instances of assault on field level officers. State Government and local administration need to take effective steps to curb such incidents and create an atmosphere of security.

5. Encroachments and Ribbon Development along National Highways

Encroachment of government lands is a common phenomenon. Almost all NHs suffer from this menace. The Central Government which has the control of National Highways has notified Land and Traffic Act (2002) for removal of encroachments, control of traffic and control of access, which is applicable only within the right of way of National Highways. The State Governments have also to enact similar statutes for control of road side construction activities. Some of the States like Assam, Rajasthan, Uttar Pradesh, Haryana and Karnataka have already enacted legislation in this regard.

Private Sector Participation & Toll Roads

Historically, investment in creation of transport infrastructure has largely been made by the State in India. In assessing the role of the private sector, a distinction has to be made between infrastructure and services. The basic road infrastructure, with a few exceptions is under the purview of the public sector.

To bridge the resource gap and to instill competitive efficiency, efforts are being made to associate the private sector with road projects. However, the initial response has not been very encouraging and more innovative methods are needed to ensure greater participation of the private sector.

Levy of User Fees on roads is another alternative for generating additional resources for their upgrading. The major attraction of toll financing is speedier construction of roads which may otherwise be delayed due to budgetary constraints. Further, being implemented on a pay- as- you- use principle, they are usually constructed and operated on commercial principles implying efficiency in execution and better level of service to users.

The concept of direct tolling, viewed mainly as a user charge has already been successfully implemented mainly on bridges and bypass roads and on four lane National Highways. The developer assumes the majority of the risk associated with design, construction, maintenance, operation and financing of the road. To encourage private sector participation, the Govt. has introduced annuity approach in which a fixed annual payment is made to the entrepreneur. Due to limitation of the budgetary resources, the role and participation of private sector are to be encouraged by and large for the development of National Highways.

Reform Initiatives in Road Transport

a. Rationalization of Motor Vehicle Taxation

Over the years, several distortions have crept into the motor vehicles taxation. There is a wide variation in the taxation rate among States and Union Territories. This leads to irrational pricing of services and loss of revenue to the states. This also affects movement of goods and passengers across inter- state borders and is a source of harassment to the operators. The subject had been deliberated upon in detail at the 30th meeting of Transport Development Council held on 16 January, 2003. Though there was unanimity that a uniform taxation structure is desirable, by and large, the States were not in favour of amending their taxation structure on lines suggested in the agenda note for the meeting. The States agreed to consider concession/ exemption in road taxation for vintage cars, vehicles for handicapped, tractors, buses dedicated to educational institutions, ambulances and fire brigade vehicles.

Octroi and sales tax lead to unnecessary detention of vehicles, apart from causing harassment and adding to operating cost. At present, only a few states levy octroi. Beginning with small localities, these states should Phase out levy of octroi. Further, Sales tax barriers may be put up only at the entry and exit points of States and not along the route. Streamlining procedures and computerization of sales tax posts may help in reducing detention time and curbing malpractices. With VAT system coming into force, Octroi and Sales Tax barriers are expected to be done away with, which would eliminate the barriers.

b. Technological Upgradation

There has been substantial induction of new technology in the personalized motor vehicles. However, in respect of trucks and buses, such technology upgradations have been somewhat slow. Low diesel prices in the past and extreme overloading made possible by lax implementation of rules and regulations, unhelpful tax regime and congested roads – all led to delays in the induction of new technology in the transport industry. Moreover, the fabrication of bus body and the truck body has hitherto been virtually unregulated. The bus body code has been evolved and work on the same in respect of trucks is in progress. In order to implement these norms, a system of accreditation of body builders needs to be evolved.

It has been assessed that multi- axle vehicles save fuel upto the tune of 50% per tonne km. Reduced fuel consumption apart from monetary saving also has a salutary effect on reduction of pollution. Multi- axle vehicles are also more road- friendly as these put less stress on the road infrastructure. In fact, one multi- axle vehicle can be deemed equivalent of the load carrying capacity of four numbers of rigid axle- vehicles. In the advanced countries, bulk transportation is done on multi- axle vehicles while the rigid vehicles do the distribution at the local levels.

However, in India generally rigid vehicles are used for both highway operations as also at local levels. It is assessed that whereas a rigid vehicle covers about 250 kms per day, the multi- axle vehicle covers around 400 kms per day. Similarly, emissions from the multi- axle vehicles per tonne of load carried are also correspondingly lower. It is, therefore, necessary to apply differential taxation to encourage the use of multi- axle vehicles. There is an urgent need to profit from the increased use of low tare weight and heavy haul multi axle trucks, which are more fuel- efficient.

The harmonization of safety related aspects of auto components and motor vehicles with the prevalent global practices is also essential. A number of steps have been taken in respect of safety belts, tyres, head lamps, seat anchorages, rear and later under- run protective devices in heavy trucks, efficient breaking etc. There is a need to prepare a road safety map for automotive standards.

c. Barriers on National Highways

Various departments of the State Governments such as police, revenue, forest, local municipalities etc. erect barriers at different locations without consulting or informing the local public works departments, in charge of the NHs, or the Ministry of Surface Transport. This seriously affects the fast and smooth movement of traffic along these NHs. State Governments should undertake a comprehensive review so that these barriers if required essentially should be at minimal locations such as at Inter- State borders and by constructing a separate lay- by (as per Ministry’s guidelines).

d. Danger from Roadside Hoardings

Hoardings/ Advertisement boards are often erected by roadside within the right of way. The menace is visible on most of the NHs and gets aggravated wherever they pass through built up stretches. Such hoardings on NHs are illegal and against the norms laid down by the Ministry of Surface Transport and have been known to cause accidents by distracting drivers. A concerted effort is required by State Governments for removal of such hoardings.

e. Danger from Speed Breakers

Speed breakers affect the traffic flow and are safety hazards if not properly constructed. There have been instances at local level, of construction of poorly designed speed breaker whenever any accident takes place. Further speed breakers on National Highways are not permitted.

f. Overloading Of Motor Vehicles

The pavement design of road is based on the cumulative number of standard axle loads and therefore, higher axle loads cause premature distress on the road pavements which in turn increases the maintenance cost of Indian roads. It has been established that the amount of damage caused due to overloading to the road infrastructure and the life expectancy of the road far outweighs any short term gain. The highway pavements are designed for a particular load. The damaging affect of higher axle loading than the standard axle is governed by "Fourth Power Law". For example, an increase in axle load from 8 to 16 tonnes will result in damage to road by a factor of 16 and not by a factor of 2.

An overloaded vehicle causes higher pollution besides inflicting high vehicle operating costs. Besides overloading is also a potential hazard not only to the driver of such vehicles but also to other road users. The States and UTs are required to effectively enforce the provisions of Motor Vehicles Act, 1988 and Central Motor Vehicles Rules, 1989 to curb overloading.