category: literaturenote citekey: shresthasustainableapproachroadtransport title: SUSTAINABLE APPROACH TO ROAD TRANSPORT MAINTENANCE PRACTICES FOR EFFECTIVE SERVICE DELIVERY authors: "Shrestha, Hare Ram" zotero_key: 2SZLZAVU zotero_storage: J7J83R3I collections: imporditud folder: 001_artiklid firstAuthor: "Shrestha, Hare Ram"

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ECONOMIC POLICY NETW ORK

Po licy Pape r 2 4

SUSTAINABLE APPROACH TO ROAD TRANSPORT MAINTENANCE PRACTICES FOR EFFECTIVE SERVICE DELIVERY

H are Ram Shre stha

September 2006

Prepared for: Economic Policy Network Government of Nepal/ Ministry of Finance Singha Durbar, Kathmandu, Nepal

Tel: 977-1-4211353 Email: epn@mof.gov.np Website: www.mof.gov.np

and

Asian Development Bank Nepal Resident Mission Srikunj, Kamaladai, Ward No. 31 P.O. Box: 5017, Kathmandu, Nepal Tel: 977-1-4227779

Fax: 977-1-4225063 Email: adbnrm@adb.org Website: www.adb.org/nrm

This report has been prepared by Mr. Hare Ram Shrestha, Transport Specialist.

Inputs from various stakeholders during interactions at Advisory Committee meeting, and the workshop organized by the EPN Focal Unit have been incorporated in the report.

Foreword

Economic Policy Network (EPN) initiated in August 2004 is an undertaking of the Government of Nepal with an Asian Development Bank (ADB) Technical Assistance (TA) to develop and institutionalize an open, responsive and result oriented economic policy formulation process based on sound economic analysis and dialogues with the partnership of public and private sector, academia, and independent professionals, to support and consolidate the Government's economic policy reforms on poverty reduction strategy. The initial focus has been in the areas of macroeconomic management; trade, investment and employment; infrastructure development; and tourism, agriculture, and regional development through four thematic advisory committees chaired by the secretaries of the respective implementing ministries, and guided by a high-level steering committee. The present study is an outcome of the initiative under the Advisory Committee for Economic Policy on Infrastructure Development chaired by the Secretary of the Ministry of Physical Planning and Works.

This report has attempted to evaluate the current and past transport infrastructure maintenance practices in Nepal. The financing mechanism of Road Board has also been reviewed. The report focuses on Strategic Road Network (SRN) and Local Road Network (LRN) systems and their implication in terms of social and economic cost. The recommendations made by this study are the outcomes of consensus reached among major stakeholders through various consultations and the EPN workshop. I hope the findings and recommendations will be helpful for policy makers for future reforms.

I would like to thank Mr. Hare Ram Shrestha for carrying out the study. I also thank all those who have provided inputs for the report during the interactions, the advisory committee meetings, and the EPN technical workshop held in Nepal Administrative Staff College, Jawalakhel, Lalitpur. The work of the advisory committee for Economic Policy on Infrastructure Development is to be commended for selecting the issue and for following through with the study. I would also like to appreciate the entire EPN team for their hard work. Last but not least, I would like to thank the ADB for supporting this initiative.

Dr. Posh Raj Pandey

Member

National Planning Commission

Government of Nepal

[Chairman—EPN Steering Committee]

Abbreviations

AADT Average Annual Daily Traffic ADB Asian Development Bank

AHIP Arniko Highway Improvement Project ARMP Annual Road Maintenance Plan DDC District Development Committee.

DDG Deputy Director General

DDP Dhading Development Project (GTZ supported)

DDR Department of Roads

DoLIDAR Department of Local Infrastructure Development and Agriculture Roads

DFID UK Department for International Development

DRILP Decentralized Rural Infrastructure and Livelihood Project

(ADB funded project through DoLIDAR)

DRO Division Road Office

DRSP District Road Support Programme (SDC supported)

DTO District Technical Office

ECLAC UN-Economic Commission for Latin America and the Caribbean ERROM Eastern Region Road Maintenance Program (DFID supported)

FAR Financial Administration Rule

FY Fiscal Year

GIS Geographic Information System

GON Government of Nepal

GTZ German Technical Cooperation

IARMP Integrated Annual Road Maintenance Plan

ICIMOD International Centre for Integrated Mountain Development

IRF International Road Federation

Km. Kilometer

KMC Kathmandu Municipal Corporation LISP Local Initiatives Support Programme

(HELVETAS supported project in Palpa District)

LRN Local Roads Network

MLD Ministry of Local Development

MOF Ministry of Finance

NPC National Planning Commission

MPPW Ministry of Physical Planning and Works

NRs Nepali Rupees

ODA UK Overseas Development Administration PBMC Performance Based Maintenance Contract

PD Person Days

PDP Palpa Development Project (HELVETAS and GTZ supported)

PPTA Project Preparation Technical Assistance

PWD Public Works Division

RA Road Agency RBN Roads Board Nepal

RMDP Road Maintenance and Development Project

(World Bank funded project to DOR)

RMRP Road Maintenance and Rehabilitation Project

(World Bank funded project to DOR)

RNDP Road Network Development Project

(ADB funded project to DOR)

ROW Right of Way

RREPM Routine Recurrent Emergency and Periodic Maintenance

SDC Swiss Development Cooperation SDE Senior Divisional Engineer SDI Surface Distress Index

SMD DOR Strengthened Maintenance Division

SMDP Strengthened Maintenance Development Program

(SDC supported project in DOR)

SRIDP Second Rural Infrastructure Development Project

(ADB funded TA project to DoLIDAR)

SRIP Second Road Improvement Project

(ADB supported project to DOR)

SRN Strategic Roads Network

TRIP Third Road Improvement Project

(ADB supported project to DOR)

UK United Kingdom UN United Nations

UNDP United Nations Development Program VDC Village Development Committee

VOC Vehicle Operation Cost

	Abbreviations And Accronyms
	Executive Summary	i
	Chapter I Maintenance Concept and Existing Policy1
1.1	Background1
1.2	Factors Affecting Road Deterioration1
1.3	Existing National Policy4
1.4	Policy on Maintenance of Strategic Road Network5
1.5	Policy on Maintenance of Local Road Network5
1.6	Issues6

	Chapter II Road Network Status of Nepal8
2.1	Strategic Road Network8
2.2	Rural Road Network:8

2.3	Urban Road Network:8
2.4	Total Road Network:9
2.5	Bridge Status11
2.6	Road Requirement Issue11

	Chapter III Review of Past and Present Practices of Road Maintenance12
3.1	Strategic Road Network12
3.2	Rural Road Network13
3.3	Maintenance Scenario in other Countries13

	Chapter IV Planned Maintenance in Dor15
3.1	Background15
3.2	Routine Maintenance16
3.3	Recurrent Maintenance16
3.4	Periodic Maintenance17
3.5	Bridge Maintenance17
3.6	Budget Trend for Maintenance17
3.7	Length Workers for Routine Maintenance18
3.8	Successful Practices In Operation Within Nepal & Prospects For Replication19

	Chapter V Performance-Based Maintenance Contracts of Roads20
5.1	Basic Concept of PBMC20
5.2	Management Modality20
5.3	Scope of Works and Responsibility21
5.4	Road User Satisfaction Level Expected to Improve22
5.5	Monitoring, Evaluation and Payment22
5.6	PBMC Experience and Issues23

	Chapter VI Roads Board Nepal in Financing Road Maintenance24
6.1	Roads Board Concept:24
6.2	Roads Board in Nepal24
6.3	RBN Planning and Fund Disbursement Schedule25
6.4	Estimated Fund Requirement26
6.5	Projected Revenue26

| | Chapter VII Backlog in Road Maintenance & its Implication29 | | |------------|-------------------------------------------------------------|--| | 7.1 | Backlog in Maintenance and It's Implication29 | | | 7.2 | Current Backlog in Road Maintenance29 | | | 7.3 | Issues in Backlog Maintenance31 | | | | Chapter VIII Rural and Urban Road Maitnenance32 | | | 8.1 | Government Policy32 | | | 8.2 | Rural Road Maintenance Early Initiatives32 | | | 8.3 | Rural Road Maintenance Issues33 | | | 8.4 | Urban Roads Maintenance Issues34 | | | | Chaptert IX Recommendations36 | | | | Chapter X Policy Action Matrix40 | | | References | | |

Annexes

Executive Summary

Maintenance Concept and Existing Policy

Roads are among the most important and the highest value public assets in most of the countries in the world. Objective of the road maintenance is to provide the service to road user in its designed level and standard and at the same time preserve the road asset value preventing its deterioration. Without regular maintenance, roads can fall into disrepair, resulting in high direct and indirect costs. But road maintenance is politically not attractive like new road construction. Therefore, in most of the developing countries, no adequate and stable flow of funds for road maintenance through general government budget financing procedures is allocated. Very few countries, especially developed countries have allocated adequate resources to road maintenance on a sustained basis.

Road maintenance is addressed in various policies in Nepal. Nepal Transport Policy 2058 (MPPW 2000), along with various other transport policies related with transport sector, has set the policies related with maintenance: The DOR Strategy prepared in 1995 clearly states it as a service oriented institution and categorizes its responsibility in three basic aims, in which one is "the maintenance of the network is to provide a reasonable level of serviceability for road users at all times and to protect the considerable capitol investment made in roads". The DOR strategy, with its 6 objectives, 9 policy options and 51 key measures, mostly related with maintenance, envisages to meet the set goal of the reduction of total road transport costs. Departmental policy documents on maintenance definition, activities, norms for and standard procedure for periodic maintenance planning are prepared.

National Strategy for Rural Infrastructure Development was prepared in 1997 by MLD. It has set the ten objectives, in which objective 8 is "establishment of improved operation and maintenance system with output envisaged sustainability of built-infrastructure". DoLIDAR have also prepared National Plan for Rural Road Maintenance in 1999, Ministry of Local Development brought the Local Infrastructure Policy recently in 2005. Local transportation system is the major area of local infrastructure sector. It has stated in its working policy (7.2.2.2 that …No new projects shall be operated without having made clear identification of the resources of required budget for maintenance and appropriate arrangement of its implementation. Ppolicy has given strong and sufficient thrust on maintenance issue. But in reality, local bodies, especially for RRNs, has neglected the maintenance part.

Road Status Of Nepal

There are 3338.66 kilometers of operational national highways and 4196.13 kilometers of operational feeder roads. Thus 7534.79 kilometers of strategic roads are operational, with more than 1230 bridges along the SRN of Nepal. There are 21695 kilometers of rural road networks in Nepal. But many rural roads (about 10,000 km.) are not operational due to inadequate geometric compliance and lack of supervision during construction, however these roads could be operational after some geometric improvements. According to Statistics of Strategic Road Network, 2004, DOR, there are 2259.9 kilometers of urban road network in the country.

Total roads network of the country is 31,489.79 kilometers. But only 5280.87 kilometers of roads is bituminous. Almost all the rural roads are unpaved, thus are operational during fair weather only. This is however a lowest road density of road in terms of population and area. Only 17% roads are blacktopped, 20% gravel surface and remaining 63% roads are earthen surface. Nepal's road network is extremely less compare to other countries, both in terms of area and population. India has achieved 100 km per 100 square kilometers. As of 2002 the road density in Nepal was 19.91 km per 100 sq. km. The 20 years Road Master Plan of DOR including all types of road networks at the end of year 2022 would be 43,600 km. Even after achieving the target, density will be 29.68 km per 100 sq km, which will still be very low.

Review of Past and Present Practices Of Road Maintenance

More emphasis was given on new construction. Negligence in maintenance resulted in heavy loss of the road asset. A study revealed that road asset loss in Nepal is 1000 to 2000 million rupees annually. Majority (52%) of the SRN was in poor condition in 1992. From early nineties, many donors funded projects like SRIP, TRIP, RMRP, ERROM, AHIP of rehabilitation, improvement and maintenance were implemented. After the implementation of these projects, road condition of SRN was improved significantly. Poor condition of road reduced from 52% in 1992 to 12% (31 % in good condition and 57% fair condition) in 1999 in seven years of duration (Deuja 2005).

Department of Roads introduced The DOR Strategy in 1995. Strategy suggested the maintenance action plan and emphasized on planned maintenance programme of integrated routine, recurrent and periodic activities. SMDP supported by SDC was established in 1993. Length workers system of maintenance is successfully introduced and implemented. Now this program is internalized in DoR.

Further with the establishment of Roads Board Nepal attempt in maintenance of roads received more emphasis. This is positive attempt toward the endeavor of improving road maintenance system in Nepal. However institutional reform may require for RBN in addressing the dynamism seen in development of roads. In the year 2004, status of road is further improved to 87% of road length with good and fair condition and 13% in poor condition (HMIS, DOR 2006).

Development of RRN started since the early 80's, but wider initiative throughout the country took place since last decade only. Effort was started to establish the maintenance system in rural roads in Palpa and Dhading districts during the early nineties. The approach to rural road maintenance was set out in 1997. National Strategy for Rural Infrastructure Development that led to the creation of DoLIDAR.

Maintenance scenario in other developing countries is also similar to Nepal. Worldwide 750 – 880 thousand people are killed in road accidents and 23 – 34 million people injured costing global economy of US \$ 500 billion per year. 85% of road accidents occur in developing and transition countries and half of deaths in Asia-pacific region.

Planned Maintenance In DOR

SMDP introduced planned maintenance system. It has contributed to establish the maintenance system in DOR, especially the routine maintenance by introducing the length person system, which is major achievement of SMD. Swiss support started since 1993 and lasted until very recently, 30 June 2006. Planned Maintenance is the execution of routine, recurrent and periodic activities in an interdependent and systematic manner. The Divisions prepare a yearly plan of maintenance operations. The SMD programme for the maintenance of roads has proved to be very effective both in terms of maintenance planning and implementation. DOR has prepared the Norms for routine maintenance; recurrent maintenance of paved highways and feeder roads and Departmental Policy Document on Standard Procedure for Periodic Maintenance Planning is prepared.

Routine maintenance practice through length-person needs to be replicated in RRN. This system of length person was adopted in some of rural roads in two roads in Dhading district during early 90ies. Some donor funded rural road projects like DRSP are supporting the DDCs in institutionalizing the length person system for routine maintenance. Urban roads are potential for both length-person system for routine maintenance and PBMC. But at present municipalities are not strengthened to take up the systematic maintenance.

Performance-Based Management And Maintenance Contracts Of Roads

Performance-based contracting for the management and maintenance of road networks is a new concept designed to increase the efficiency and effectiveness of road maintenance operations. It should ensure that the physical condition of the roads under contract is adequate for the need of road users, over the entire period of the contract. This type of contract significantly expands the role of the private sector, from the simple execution of works to the management and conservation of road assets. During the bidding process, contractors compete among each other by proposing a fixed monthly lump-sum fee per km of road to be paid to them. The monthly lump-sum remuneration paid to the contractor covers all physical and non-physical maintenance services provided by the contractor, except for unforeseen emergency works, which is remunerated separately.

PBMC was started without enough preparatory works, especially the required training to both DOR staff and the contractors. PBMC is introduced in WB and ADB financial support, but no institutional support to create compatible environment to implement the PBMC.

Roads Board Nepal In Financing Road Maintenance

RBN is established as autonomous body in 2002. It is established to perform the routine, recurrent, periodic and emergency maintenance (RREPM) of the road and to collect the revenue from toll tax. All the roads within the country are under the maintenance area of RBN. of the currently availing are toll tax (road user tax), fuel levy on diesel and petrol and vehicle registration fee. Road user tax is directly collected by RBN, whereas the fuel levy is collected in central treasury in Ministry of Finance (MOF) and channeled to RBN. It allocates 70% of its resources to SRN through DOR and 30% for LRNs through DoLIDAR. Road Agencies have to provide a minimum counterpart fund of 30% (municipalities) and 20% (DDCs). Current fund disbursement from RBN is about 16 % of total required budget for all types of roads.

Backlog In Road Maintenance & Its Implication

Delayed maintenance has both direct and indirect cost. Without regular maintenance, roads can fall into disrepair. Postponing road maintenance results in high direct and indirect costs. If defects are maintained promptly, maintenance cost is modest. If defects are neglected, road sections may fail, requiring reconstruction at three times or more the cost on average of maintenance cost. Study shows that repair costs rise to six times maintenance cost after three years of neglect and 18 times after five years of neglect. During last FY 2062/2063 (2005/2006) total of 3866 kilometers was considered routine maintenance. Total budget of NRs. 93.96 million is allocated and disbursed from RBN. Total 3669 kilometers of road was under recurrent maintenance (minor), which was fully funded by RBN with the budget of NRs. 112.86 million and total length under recurrent maintenance (major) is 4020 kilometers. Total cost required was NRs.155.926 million. This cost was funded partly by RBN with NRs. 58.59 million and partly by DOR regular budget with NRs. 97.33 million.

But periodic maintenance is not taking place as planned due to inadequate budget. Total 1006 kilometers of SRN was required resealing in last FY 2062/2063 (2005/2006). Budget required was NRs. 930 million. But budget allocated was NRs. 194 million under DOR budget (budget head 48-4-555), which is sufficient for 200 kilometers only. Thus at present there is backlog of 800 kilometers of SRN. Rehabilitation cost is roughly three times higher than periodic maintenance and reconstruction cost is three times higher than rehabilitation cost. Cost of periodic maintenance is about NRs 1 million per kilometer, cost of rehabilitation is about NRs 3 million and cost of reconstruction is NRs. 9 million per kilometer. Total length requiring rehabilitation of SRN is now 258 kilometers. Budget required for rehabilitation is NRs. 774 million. Thus the backlog in periodic maintenance increases the length of rehabilitation and ultimately to reconstruction. This will have direct implication of substantial increment in investment. Further, it has more indirect implications on vehicle operation cost, difficulties and hurdle in smooth driving and cause the user and social dissatisfaction. Thus backlog in road maintenance has multi-dimensional and chain implication. Periodic maintenance backlog is the major problem of SRN. Therefore priority should be given to reduce the backlog in maintenance.

Rural and Urban Road Maintenance

DOR is undertaking the responsibility of SRN. But, traditionally DOR was undertaking the urban roads and local roads too. National Transport Policy 2058 (2001) states in its preamble that highways and feeder roads linking district headquarters will be the responsibility of central agencies. Road Maintenance Committee was formed in 1989 in Palpa District. This might be the first maintenance initiative in district level. Maintenance Initiative was taken in Dhading in 1993 and introduced the system of toll tax collection and routine maintenance. Length persons were employed for road maintenance.

DoLIDAR has prepared National Plan for Rural Road Maintenance (NPRRM) in 1999. Detailed program starting from FY 1999/2000 to FY 2006/2007 is prepared. DoLIDAR has taken maintenance initiative well in advance, immediately after its establishment and prepared the NPRRM 1999. But maintenance issue of rural roads is very complex issue. Most of these roads are not in complete state. DoLIDAR estimates that roughly about 10 thousand kilometers of roads are not in operation. DoLIDAR receives NRs. 40 million annually for maintenance and disburse to DDCs. Besides this, RBN provides its 30 percent of budget for the maintenance of local roads including urban roads through DoLIDAR.

Mountain and settlement management is required for its long-term sustainability of rural roads, especially in hill area. Most of the RRNs are built through the voluntary contribution of land from and they are still paying the land tax. Transfer of ownership of the land of RRN is a major issue to address by the local bodies.A complete study of all rural roads is required to understand and to take proper action in line with present social, political and economic.

DROs have identified the some urban roads and included in the SRN inventory. All other roads not included in the DOR SRN inventory within the boundary of respective municipalities are under the urban roads category. However municipalities, even the Kathmandu Municpal Corporation and Lalitppur Sub-Metropolitan City are not in position to systematically governing the maintenance mechanism of the roads under their responsibility. Enough preparatory works is not carried out before handing over the urban roads. Municipalities are anxious and reluctant to invest in maintenance of the roads. It is very urgent now to enhance and strengthen their maintenance capacity in terms of institutional aspect, managerial aspect, resources and technical aspect.

Recommendations

General

1 Funding mechanism of commercially viable roads for maintenance with high traffic volume and commercially not viable roads should be separated.
2 Process of delineating the DOR responsibility to SRN only should be completed.
3 RBN should have full responsibility to regulate the user charge mechanism.
4 Carryout the study to examine the current fuel levy and toll tax rate and analyze to establish the rationalized fuel levy and toll tax rate and implement accordingly.
5 Provide training to RBN staff and DOR staff on HDM IV to enhance the skill and capacity.
6 RBN should expand awareness programs to educate the road users to widen the understanding among stakeholders, in turn to receive the support in generating the fund.
7 Adequate monitoring to the works and interaction with UC members should be made.
8 Regulating the axle load is very urgent, to be coordinated with traffic management.
9 Achievement of master plans has to be statistically checked and analyzed.

Strategic Roads

10 Provide adequate fund for periodic maintenance to minimize the backlog.
11 Training should be provided to the DOR staffs and contractors before piloting the PBMC.
12 Review the pilot PBMC implemented in SRNs.
13 Regularly monitor the length workers and continue the reward system.
14 Vulnerable area identification of roads for emergency preparedness to avoid road closure

Rural Roads

15 Avoid erratic funding mechanism RRNs and investment as planned in DTMP.

16 Continuously follow-up to local bodies to improve road maintenance
17 New construction and maintenance should be separated.
18 Establish a separate road maintenance unit in districts under DTO/DDC.
19 Adopt phase-wise institutional strengthening to DTO/DDC.
20 Length persons for routine maintenance are to be replicated in rural and urban roads.
21 DTO/DDC staffs should be well trained in planned maintenance.
22 Adopt mountain and settlement management, provide technical back up, avoid political interference and develop roads in planned manner.
23 DoLIDAR should educate politicians of districts and municipalities on maintenance.
24 Transfer of ownership of the land of RRN should be address by the local bodies.
25 A complete study of all rural roads is required to understand and to take proper action in line with present social, political and economic.
26 Explore the alternative financing mechanism to RRN maintenance.

Urban Roads

27 Policy of separate utility lane to manage outside the road in urban area should be implemented wherever possible in existing road and should be enforced in new URs.
28 MLD should take lead role in establishing a strong coordination unit among the service agencies to safeguard the road users in each municipality.
29 Strengthen municipalities in terms of capacity building of road maintenance.
30 Establish a separate road maintenance unit in municipalities and provide support for taking up systematic maintenance system.

Policy Action Matrix

Policy action matrix on policy, institutional and administrative/ others are given in chapter 10.

Chapter I

Maintenance Concept and Existing Policy

1.1 Background

A stitch in time saves nine

Roads are among the most important and the highest value public assets in most of the countries in the world. Road asset value of Nepal at present is at range of NRs 100 billion. Objective of the road maintenance is to provide the service to road user in its designed level and standard and at the same time preserve the road asset value preventing its deterioration. Without regular maintenance, roads can fall into disrepair. Postponing road maintenance results in high direct and indirect costs. If defects are maintained promptly, maintenance cost is modest.

Maintenance of the road network is to provide a reasonable level of serviceability for road users at all times and to protect the considerable capital investment made for the roads. (DOR, 1995). But road maintenance is politically not attractive like new road construction, rehabilitation and other visible development works. Therefore experiences in many countries, especially the developing countries, reveal that no adequate and stable flow of funds for road maintenance through general government budget financing procedures (annual budget debate) is allocated (Zietlow 2004).

Although, need of road maintenance is widely recognized, it is still not getting adequately done. Many countries spend just 20 – 25 percent of what should be spending on maintenance. Very few countries, especially developed countries have allocated adequate resources to road maintenance on a sustained basis.

1.2 Factors Affecting Road Deterioration

Irrespective of the design and construction standards that have been adopted, all road pavements will deteriorate over time. The deterioration is progressive and is influenced by several factors under three groups as follows:

Environmental: terrain, climate and local practices

Traffic: volume and axle load and

Construction: design and construction standards and quality of materials and

workmanship.

Even in roads constructed with good quality according to the design standard with good quality materials and workmanship, roads deteriorates due to additional axle load. SRN linking major cities like Kathmandu and in Tarai area, additional axle load than the road design for, is common. This is a major problem. Therefore regulating the axle load is very urgent. This issue is to be coordinated with traffic management to enforce the axle load regulation.

Deterioration Characteristics of Paved Roads

The progression of deterioration of paved roads with minimal maintenance passes through three phases as follows:

Phase I: This phase can extend to two-thirds the life of the road and is a period of limited visible deterioration with good serviceability and a marginal increase in roughness. Pavement in this phase can be considered in good condition and deterioration is usually limited to minor cracking, the occasional pothole and edge damage.

Phase 2: Visible deterioration is apparent and increasing markedly towards the end of the phase with noticeable rise in the level of roughness; serviceability varying from reasonable to poor. Pavements in this phase can be considered fair to poor condition. Extensive cracking, potholes, wheeltrack rutting, and edge and shoulder damage characterize deterioration.

Phase 3: It is the critical stage in the life of the pavement represented by increasingly rapid deterioration leading to radical structural failure of the pavement. Roughness reaches unacceptable levels during this phase resulting in minimal and ultimately total loss of serviceability. Pavements in this condition are no longer able to carry their design loads and can be considered in very poor to failed condition.

Deterioration Characteristics of Unpaved Roads

With unpaved roads the deterioration path is both linear and rapid and offers little choice in the selection of management options. If maintenance is deferred, the consequences become immediately apparent; the pavement deteriorates at a fairly uniform rate until very high levels of roughness are reached and pavement failure occurs. The action of traffic causes corrugation and rutting and when combined with rainfall, creates deeper ruts, potholes, gullies and washouts. In dry weather, the bond within the surface materials is weakened resulting in the loss of fine material as a dust and the eventual disintegration of the pavement.

Surface roughness, the main factor-affecting vehicle operating costs and hence serviceability is controlled by grading the pavement surface. Additionally, re-gravelling will be needed to replace surface material lost from gravel roads. If the road is allowed to disintegrate, reconstruction will be required to restore serviceability for the road user. With routine drainage maintenance only, unpaved roads in Nepal are unlikely to remain serviceable for more than 3 years. (two monsoons).

1.3 Existing National Policy

Road maintenance is addressed in various policies in Nepal. Nepal Transport Policy 2058 (MPPW 2000), along with various other transport policies related with transport sector, has set the following policies related with maintenance. Policies on transport sector are articulate in establishment of institutional set up, prioritization of maintenance, service standard, fund management, maintenance activities and institutional strengthening.

Chapter 5: Policy

Clause 1 (Gha): Establishment of institutional set-up to generate resources and to deliver appropriate services by developing capacity and self-sustainability for construction and maintenance of transport infrastructures.

Clause 5: Pay special attention for maintenance of already established infrastructures.

Clause 6: Other than national level transport infrastructures and strategic networks,

construction and maintenance of local level transport infrastructures is to be managed by local level institutions.

Clause 7: Prioritization of maintenance and upgrading of national level transport infrastructures will be based on traffic density and economic return.

Chapter 6: Working Policy

6.1: Transport infrastructure
Maintenance of existing transport infrastructures to deliver appropriate level of services
To maximize the utilization of existing transport infrastructures, construction, maintenance and expansion of district and village level transport infrastructures shall be carried out at local level.
Arrangement of distribution of sewerage line, water supply, telephone, electricity etc is to be managed outside the roads and footpaths. Separate cycle lanes shall be built in urban area.
6.3: Service standard
To maintain the design speed in highways, uncontrolled entry roads and construction of permanent and temporary house and shades will be controlled by demolishing the encroachment.

Chapter 7: Sector wise transport policy

7.1.4 Urban Roads: Roads other than listed in strategic roads (SRN) within the municipal boundaries are Urban Roads (UR). Concerned municipality shall construct and maintain all urban roads.
- 7.1.5 Transport fund and maintenance management:
A separate autonomous and self-sustainable institution shall be established for construction, upgrade and maintenance of important road network system.
Prioritization of road upgrading and rehabilitation will be based on annual average daily traffic (AADT) and economic rate of return.
Road maintenance work will be carried out based on its classification in general maintenance (routine and recurrent), periodic maintenance, emergency maintenance and preventive maintenance.
General maintenance and periodic maintenance shall be operated in cyclic order. Normally periodic maintenance of black topped and gravel road is done in every 6 years of intervals.
Institutional development of road maintenance shall be done on the principle of charging road user fee to provide enhanced service delivery to road user to minimize the vehicle operation cost (VOC) within the designed life cycle period.
Regularity and cost-effective policy shall be adopted in road maintenance.

1.4 Policy on Maintenance of Strategic Road Network

The DOR Strategy prepared in 1995 clearly states it as a service oriented institution and categorizes its responsibility in three basic aims:

The construction of a basic road network which meets the present road transport needs of the Country in the three essential areas of: long distance transport; collection and distribution; human and social liaison and development.
The maintenance of the network is to provide a reasonable level of serviceability for road users at all times and to protect the considerable capitol investment made in roads.
The provision of measures to ensure a reasonable level of safety for all road users including pedestrians.

In 1991/92 during the preparation of the 8th National Plan, DOR identified its End Goal as "the reduction of total road transport costs". Total road transport cost is the sum of road construction, road maintenance and vehicle operating cost. Road maintenance cost and vehicle cooperating cost is directly interdependent. In general, if road is well maintained VOC will be effectively minimized otherwise VOC will be significantly high in poor road condition. In the other hand deterioration of road, in the absence of required maintenance works will result in wastage of road asset value requiring high capital investment in rehabilitation and reconstruction.

The DOR strategy, with its 6 objectives, 9 policy options and 51 key measures envisages to meet the set goal of the reduction of total road transport costs. All the policy options and key measures are related to maintenance.

In the process of institutionalization of maintenance system, significant achievement is seen in DOR. Departmental policy documents on road maintenance definition and activities, norms for routine and recurrent maintenance and standard procedure for periodic maintenance planning are prepared. Maintenance activities are also improved substantially, though backlog maintenance is increasing every year in periodic maintenance.

1.5 Policy on Maintenance of Local Road Network

National Strategy for Rural Infrastructure Development was prepared in 1997 by Department of Local Infrastructure Development and Agriculture Roads, Ministry of Local Development. It has set the ten following objectives:

Objective 1: Raise the policy level awareness at local level (Municipalities, DDCs VDCs) Output envisaged: Commitment from local leaders

Objective 2: Establishment of appropriate technical organization to deal with the rural infrastructure sector.

Output envisaged: Department of Local Infrastructure Development with adequate human and technical resources.

Objective 3: Establishment of planned human resource development process.

Output envisaged: Competent technicians, trained users, capable contractors and skilled workers.

Objective 4: Establishment of decentralized planning process.

Output envisaged: Local governing institutions become capable in effective decentralized planning.

Objective 5: Ensure uniformity in the planning process.

Output envisaged: National Perspective Plan for each rural infrastructure category.

Objective 6: Ensure the need-based budget.

Output envisaged: Enough resources available as per the plan.

Objective 7: Establishment of district-wise standard implementation process.

Output envisaged: Effective participations of users, elected bodies, private sector and NGOs in project implementation process.

Objective 8: Establishment of improved operation and maintenance (O & M) system. Output envisaged: Sustainability of built-infrastructure.

Objective 9: Establishment of effective Monitoring and Evaluation (M & E) system.

Output envisaged: Ensure the process and end results

Objective 10: Direction of Donors

Output envisaged: Uniform, shared assistance to a common objective)

DoLIDAR have also prepared National Plan for Rural Road Maintenance in 1999, immediately after its establishment. NPRRM, based on the road inventory of 1999 and projected increase in rural road network have set the physical targets of maintenance, financial targets of maintenance and resource mobilization mechanism on cost sharing basis.

Ministry of Local Development brought the Local Infrastructure Policy recently in 2005. This policy identifies the seven major sectors of local infrastructures:

1. Local Transportation System
2. Irrigation and River Control
3. Micro-Hydro Power and Alternative Energy
4. Water Supply
5. Housing, Building and Urban Development
6. Solid Waste Management and
7. Social Infrastructure

Local transportation system is the major area of local infrastructure sector. It has stated in its working policy (7.2.2.2) "except in the project where maintenance is carried out by the consumers themselves, the local bodies shall have to allocate budget to the new projects only after the budget arrangement is made for the maintenance of existing infrastructures. No new projects shall be operated without having made clear identification of the resources of required budget for maintenance and appropriate arrangement of its implementation."

1.6 Issues

Most of the policies set by National Transport Policy 2000 are implemented, but some of the policies could not be implemented. Policy of establishing a separate institution is materialized in the form of Roads Board Nepal. Policy of separating SRN and RRN and UR is taking place, prioritization of maintenance and upgrading of national level transport infrastructures based on traffic density and economic return is taking place slowly. Road maintenance work in routine, recurrent, periodic and emergency maintenance is taking place in SRN. But policy of arrangement of distribution of sewerage line, water supply line, telephone, and electricity to manage outside the road and footpaths and policy of constructing separate cycle lanes in urban area is not materialized.

Most of the 9 policy options with 51 key measures of DOR Strategy 1995 is implemented, however continuous improvement is required.

But the policies envisaged in National Strategy for Rural Infrastructure Development 1997 by DoLIDAR and National Plan for Rural Road Maintenance (NPRRM) 1999 are not materialized. Policy has given strong thrust on maintenance issue. But in reality, local bodies, especially for rural roads have neglected the maintenance part. In practice, emphasis is given in new construction and maintenance is not getting enough attention.

Due to uncoordinated massive rural road construction with inadequate fund and inadequate technical supervision, unlike SRN, LRNs are much difficult to clearly identify the maintenance need of rural roads. Implementation of maintenance activities as envisaged by NPRRM 1999 is negligible. Now there are about 22 thousand kilometers of rural road networks in the country. But many of the roads are in incomplete state. In the same road there are sections of competed parts of maintainable conditions, some sections are under construction, some sections are un-engineered section requiring change in alignments, especially hairpin bends and steep gradients and some sections are not constructed (new construction need).

Chapter II

Road Network Status of Nepal

2.1 Strategic Road Network

There are 3338.66 kilometers of operational national highways, 365.7 kilometers under construction and 4196.13 kilometers of operational feeder roads (both feeder roads major and minor) and 137.5 kilometers under construction. Thus 7534.79 kilometers of strategic roads are operational, which will be 8037.99 kilometers after completion of the roads under construction.

Table 2.1: Strategic Road Network, 2004 (in Km.)

Types of Road	BT	GR	ER	Total	UC	PL
National Highway	2505.49	417.15	416.02	3338.66	365.70	1496.40
Feeder Road Major	1360.92	1239.76	1248.57	3849.25	135.50	1112.50
Feeder Road Minor	65.18	59.40	222.30	346.88	2.00	215.30
Total	3931.59	1716.31	1886.89	7534.79	503.20	2824.20

BT: Blacktopped, GR: Gravel, ER: Earthen, UC: Under Construction, PL: Planned

Source: Statistics of Strategic Road Network, 2004, DOR

2.2 Rural Road Network:

Rural roads are categorized in two classes – class A and class B. According to the inventory prepared by DoLIDAR, there are 9159.6 kilometers of class A roads and 12944.7 kilometers of class B roads. Thus there are 21695 kilometers of rural road networks in Nepal. But many rural roads are not operational due to inadequate geometric compliance (gradient and radius) and lack of supervision during construction. DoLIDAR estimates that about 12000 kilometers of rural roads are in operation. About 10,000 kilometers of roads are not operational. However these roads could be operational after some geometric improvements e.g. gradient and radius in hairpin bends.

Table 2.2: Rural Road Network, 2004 (in Km.)

Types of Road	BT	GR	ER	Total	UC	PL
Class A	229.60	1819.90	7636.50	9746.00	1633.20	2559.30
Class B	127.60	2061.80	9759.70	11949.10	876.90	3020.60
Total	357.20	3881.70	17396.20	21695.10	2510.10	5579.90

BT: Blacktopped, GR: Gravel, ER: Earthen, UC: Under Construction, PL: Planned

Source: DoLIDAR, 2004

2.3 Urban Road Network:

According to Statistics of Strategic Road Network, 2004, DOR, there are 2259.9 kilometers of urban road network in the country.

2.4 Total Road Network:

Total operational road network of the country including rural roads is at the range of 22000 kilometers. Total roads network of the country will be 31,489.79 kilometers. But only 5280.87 kilometers of roads is bituminous including highway, feeder roads, rural roads and urban roads. Almost all the rural roads are unpaved, thus are operational during fair weather only. Three Two third of the road is unpaved, earthen. This is however a lowest road density of road in terms of population and area.

Table 2.3: Total Road Network

Types of Road	BT	GR	ER	Total	UC	PL
SRN	3931.59	1716.31	1886.89	7534.79	503.20	2824.20
RRN	357.20	3881.70	17396.20	21695.10	2510.10	5579.90
UR	992.08	664.55	603.27	2259.90	0	0
Total	5280.87	6262.56	19886.36	31489.79	3013.30	8404.10
BT: Blacktopped, GR: Gravel, ER: Earthen, UC: Under Construction, PL: Planned

Fig. 2.1 Road Network in terms of SRN, RRN and UR

Fig. 2.2: Road Network in terms of surface

Blacktopped road in Nepal is extremely less in comparison with the total road network in the country. Only 17% roads are blacktopped, 20% gravel surface and remaining 63% roads are earthen surface.

The Traffic Density Approach can crosscheck pavement requirement of the roads.

Table 2.4: Traffic Density and Standard Paving Standards – A Generalized Orientation

Traffic density (vehicle per average day)	Generalized denomination of road standard	Allowed axle load (single axle)	Technical standard and dimension
> 30,000	Asphalt concrete 22 cm.	> 10 ton
15,000 – 30,000	Asphalt concrete 18 cm.	> 10 ton
5,000 – 15,000	Asphalt concrete 14 cm.	> 10 ton
1,000 – 5,000	Asphalt concrete 10 cm.	> 10 ton
400 – 1,000	Asphalt carpet 8 cm.	> 10 ton
120 - 400	Asphalted (2 cm) on gravel base	> 10 ton	Double surface treatment (2 cm.)
70 - 120	Gravel road	> 10 ton (heavy truck)	20 cm Base of CBR>80
35 - 70	Gravel road	5 ton (light truck)	30 cm. base of CBR >30 or 10 cm gravel
< 35	Earth road	1 ton pick up, 4- wheel drive	CBR > 20

Source: Metschies G.P. Dr. (2003), Financing, Organization and Participation for Rural Road Networks:

It would be good decision making tools to match the existing roads traffic density, especially the RRNs to prepare the pavement plan of the existing roads.

Nepal's road network is extremely less compare to other countries, both in terms of area and population. India has achieved 100 km per 100 square kilometers. As of 2002 the road density in Nepal is 19.91 km per 100 sq. km. The 20 years Road Master Plan of DOR including all types of road networks at the end of year 2022 would be 43,600 km. Even after achieving the target of master plan, density will be 29.68 km per 100 sq km, which will still be very low (Deuja, 2005).

Following is the road status of 10 countries of largest road network:

Table 2.5: Countries of largest road network

| S.N. | Country | Road Length | S.N. | Country | Road Length | | | | |------|---------|-------------|------|-----------|-------------|--|--|--| | | | (Km) | | | (Km) | | | | | 1 | USA | 6,370,030 | 6 | Russia | 952,000 | | | | | 2 | India | 3,319,644 | 7 | Australia | 913,000 | | | | | 3 | Brazil | 1,980,000 | 8 | Canada | 901,901 | | | | | 4 | China | 1,400,000 | 9 | France | 892,900 | | | | | 5 | Japan | 1,152,207 | 10 | Italy | 668,669 | | | |

Source: www.mapsofworld.com, July 2006

2.5 Bridge Status

There are more than 1230 bridges in the road network of Nepal. This also represents a major national asset. Approximately 81% of the bridges are of structural concrete, 7.5% are composite structures, 4% steel bridges, 3.5 % arch bridges, 2.5% causeways and 1.5% timber bridges. 80% of the bridges are more than 40 years old. An oldest bridge in Nepal is 97 years old Bagmati Bridge located in Gujeshori.

2.6 Road Requirement Issue

Road requirement of the country is to be studied considering its social, political and geographical parameters. Various plans are prepared DOR have prepared 20 year master plans. Various DDCs have prepared District Transport Master Plans (DTMPs). These master plans have to review. Issues of strategic roads to cater the planned rural roads are to be considered. Most of the urban roads seem to be inadequate in terms of coverage of built-in area resulting in severe congestion, especially in Kathmandu and Lalitpur. Achievement of master plans has to be statistically checked and analyzed.

Chapter III

Review of Past and Present Practices of Road Maintenance

3.1 Strategic Road Network

Maintenance system was adhoc based earlier, until a decade ago in early nineties. No systematic criteria were set to allocate the maintenance fund for the road. Normally the maintenance budget proposed by the Division Road Office (DRO) used to be deducted by the proportion of about half and quarters. Thus the tradition was to propose the budget increasing by about 50 percent on what the DRO estimated. Block grant of lump sum amount used to be allocated for the DRO. Maintenance gang were employed and deployed to the road. This practice had the problem of some time inadequate manpower and sometime idle manpower.

More emphasis was given on new construction. Negligence in maintenance resulted in heavy loss of the road asset. A study by SDC (Aegerter et. el 1988) revealed that road asset loss in Nepal is 1000 to 2000 million rupees annually. Majority (52%) of the SRN was in poor condition in 1992 (Deuja 2005).

From early nineties many donor funded projects of rehabilitation, improvement and maintenance were implemented. ADB supported Second Roads Improvement Project (SRIP) and Third Roads Improvement Project (TRIP), The World Bank supported Road Maintenance and Rehabilitation Project (RMRP), The ODA supported Eastern Region Road Maintenance Program (ERROM) and SDC supported Arniko Highway Improvement Project.

After the implementation of these projects, road condition of SRN was improved significantly. Poor condition of road reduced from 52% in 1992 to 12% (31 % in good condition and 57% fair condition) in 1999 in seven years of duration (Deuja 2005).

Department of Roads introduced The DOR Strategy in 1995. Strategy suggested the maintenance action plan and emphasized on planned maintenance programme of integrated routine, recurrent and periodic activities. Strengthened Maintenance Development Program supported by SDC was established in 1993. This is the outcome of the action plan suggested by the strategy. SMDP was introduced first in Lalitpur and Bharatpur DROs as pilot projects. Preparation of the need-based budget is the main focus of SMD. Length workers system of maintenance is successfully introduced and implemented. Now this program is internalized in DoR as Strengthened Maintenance Division. SMDP's support to DROs helped to great extent in many aspects, which were difficult in government mechanism of financial regulation.

In the year 2004, status of road is further improved to 87% of road length with good and fair condition and 13% in poor condition (HMIS, DOR 2006).

Further with the establishment of Roads Board Nepal in 15 Paush 2059 under the Roads Board Act 2058, attempt in maintenance of roads received more emphasis. This is positive attempt toward the endeavor of improving road maintenance system in Nepal. However institutional reform may require for RBN in addressing the dynamism seen in development of roads.

PBMC is introduced as the pilot project in some SRNs under RMDP. Now RNDP has also started PBMC in some of the SRN. This is more advanced form of maintenance management system, widely used in developed countries. But its functionality is to be assessed in the pilot project implemented in Nepal.

3.2 Rural Road Network

Development of rural road networks started since the early 80's. But wider initiative throughout the country took place since last decade only. Effort was started to establish the maintenance system in rural roads in Palpa and Dhading districts during the early nineties. Resource generation from the toll tax from vehicle was started and closing of the roads during the monsoon was started.

The approach to rural road maintenance was set out in 1997. National Strategy for Rural Infrastructure Development that led to the creation of DoLIDAR. One of the strategic objectives is "establishment of improved infrastructure operation and maintenance process" with the related output of "sustainability of built infrastructure." Responsibility of rural road maintenance lies with the local government institutions. One function of the District Technical Office (DTO) is to draw up the operation and maintenance plan and implement accordingly.

Approach for the Development of Agricultural and Rural Roads, DoLIDAR manual prepared in 1999 provides system envisaged on the rural road maintenance.

3.3 Maintenance Scenario in other Countries

According to Roads and Highway featured topics of website of World Bank, largest industrialized countries typically spends 0.4% of GDP on road maintenance and 1.3% on new construction. Developing and transition countries typically spend 0.75% of GDP on road maintenance. Worldwide 750 – 880 thousand people are killed in road accidents and 23 – 34 million people injured costing global economy of US \$ 500 billion per year. 85% of road accidents occur in developing and transition countries and half of deaths in Asia-pacific region.

India: India has the total road length of 3.5 million kilometers, in which 170,000 kilometers are national highways and state highways. But still 40% of the villages have no all weather access. For the maintenance of national and state highways 70 billion Indian rupees (US \$1.5 billion) is needed. But India also suffers the similar problem of under-investment in maintenance like in Nepal. India's investment in road maintenance is one third of the requirement. India roughly spends 3% in road sector, whereas contribution in revenue generation is about 15% of total expenditure. Taxation in fuel is major source of revenue. Asset value of highway network of India is 2400 billion Indian rupees (US \$ 53 billion) (World Bank 2004)

Latin America: The extensive road networks in Latin America and the Caribbean valued at over US \$ 350 billion is in the state of deterioration. More than US \$ 16 billion are being wasted annually due to absence of adequate road maintenance. Scarce resources in the 80's have contributed to an ever-decreasing allocation of fund in road maintenance. Most of the countries spent less than 20% only of the fund required to maintain adequately to all the road networks. From 90's funding level for maintenance improved slightly. But it is not improved to the extent required. Now too, countries in the region are spending 20% to 50% of the funding required for adequate road maintenance. In average one third of the paved roads are in good condition, one third in regular and one third in poor condition (Zielow, 2004).

The prevailing financial and institutional system of road maintenance has been clearly identified to be at the root of the problem. In most of these countries an adequate flow of funds cannot be secured by the general budgeting financing procedure. In addition, the rules and regulations of the public administrative system do not allow for an effective and efficient management of road maintenance. As it is unlikely that under the prevailing system substantial and sustainable improvements can be made a new approach is necessary to eradicate this problem.

As a consequence, several of the countries in Latin America and the Caribbean have started to put road maintenance on a fee-for-service basis and to transfer road maintenance management from a "government ministry environment" to a "company environment", which seems to be better suited in the long-run to keep roads in good condition. As a result, a new generation of road maintenance funds has been created in Honduras, Guatemala and Costa Rica. Most likely other countries such as Brazil, Colombia, El Salvador, Nicaragua, and Peru will soon follow suit. The article discusses the principles for creating sustainable road maintenance funds in general, as well as the approach taken by each of the different countries involved.

Chapter IV

Planned Maintenance in Dor

3.1 Background

Planned Maintenance is the execution of:

1 Routine maintenance
2 Recurrent maintenance and
3 Periodic maintenance

These maintenance activities are carried out in an interdependent and predominantly systematic manner. This approach makes the best use of available resources and provides a high level of management control over maintenance operations so that they can be easily modified to suit changing conditions on the roads. In Nepal, Planned Maintenance involves organizing routine and recurrent activities on a responsive basis during the monsoon period (July to September, inclusive) and in a systematic manner for the rest of the year. At the present traffic levels, periodic activities should be programmed at fixed intervals on the basis that it is better to be 12 months early than one day late. The aim of Planned Maintenance is to provide an agreed level of serviceability on each road such that total road transport costs are kept to a minimum. This is achieved by:

Preparing an annual programme in each Division which sets out the organization and management of labor and equipment for routine/recurrent activities;
Preparing at central or regional level a multi-year programme for periodic maintenance activities.

The above programs are adjusted to suit the available budget and accordingly the programs are implemented by the 25 divisions of DoR, which are responsible for the maintenance management of roads falling within their jurisdiction. Recurrent and emergency maintenance works are implemented under the development budget heading.

Contractors are used for implementing periodic maintenance and rehabilitation of roads under the development budget heading. Traditionally DOR used to procure the materials by tender process and departmental labors were used for recurrent maintenance. Now contractors are used to implement the recurrent maintenance. Recurrent maintenance has to be carried out in cyclic manner. But at present contractors want to use all the quantity specified in the contract in one go, as he get the payment on quantity basis.

The Divisions prepare a yearly plan of maintenance operations and organize weekly programs within the yearly plan for implementation and to ensure that the programmed outputs are achieved. The SMD programme for the maintenance of roads has proved to be very effective both in terms of maintenance planning and implementation.

Due to planned maintenance system in DOR status of road condition is improved to 87% fair to good condition reducing the poor condition road to 13% in the year 2004.

3.2 Routine Maintenance

Routine maintenance work is the continuous maintenance works that is done throughout the year. Following are the activities set under routine maintenance works:

Cleaning of road surface
Bush clearance along the side drain and in the vicinity of roadside
Side drain clearance
Reshaping of earthen drain
Filling of pot holes (by gravel or earth)
Clearance of slump (up to 1 m cubic meter) temporary drain during landslide,
Cleaning of bridge and culverts
Maintenance of shoulders
Maintenance of embankment
Cleaning of road furniture
Cleaning of retaining walls
Coordination with road neighbors and stakeholders to prevent road encroachment.

DOR has prepared the Norms for routine maintenance approved by the cabinet. Length workers and supervisors norms are as follows:

Hill Roads	Length-workers		Supervisor
	Blacktopped: During monsoon:	2.5 PD for 3 Km.	0.17 PD for 3 Km.
	During fair weather:	1.0 PD for 3 Km	0.17 PD for 3 Km
Gravel:	During monsoon:	2.5 PD for 2 Km.	0.11 PD for 2 Km
	During fair weather:	1.0 PD for 2 Km.	0.11 PD for 2 Km

Tarai Roads
	Blacktopped: During monsoon:	1.5 PD for 5 Km.	0.25 PD for 5 Km
	During fair weather:	1.0 PD for 5 Km	0.25 PD for 5 Km
Gravel:	During monsoon:	1.5 PD for 5 Km.	0.17 PD for 5 Km
	During fair weather:	1.0 PD for 5 Km.	0.17 PD for 5 Km

Urban roads under strategic roads: 1 PD for 1 Km. during both monsoon and fair weather season.

Budget: Routine maintenance cost according to the norms, national average is NRs. 24304 per kilometer (DOR 2005).

3.3 Recurrent Maintenance

Recurrent maintenance is done in different time within a year time. Activities under recurrent maintenance are:

Blacktopped roads: Pot holes filling, patch works, road shoulder maintenance, crack sealing, painting of faded road paints and road signs.

Gravel roads: Pot holes filling, rut filling, dragging, grading etc.

The Minister level approval was made for the Norms of recurrent maintenance of paved highways and feeder roads. Norms is based on the length of road and quantity of structural works as follows:

Pot hole/patch/edge repair Asphalt concrete: 0% - 0.2% of paved surface area

Surface dressing/premix: 0% - 0.75% Penetration macadam 0% - 0.30%

Crack sealing: Asphalt concrete: 0% - 0.3% of paved surface area

Surface dressing/premix: 0% - 0.20% Penetration macadam 0% - 0.10%

Shoulder (Gravel reshaping) Single lane 0% - 0.5% of GR shoulder area

Double lane 0% - 0.2% of GR shoulder area

Sealing of SBST/BT macadam 0% - 0.15% of sealed shoulder area

Gravel Road 0% - 0.40% of gravel surface

National average cost of recurrent maintenance (minor) is NRs, 30760 per kilometer and NRs. 38788 per kilometer for recurrent major.

3.4 Periodic Maintenance

Departmental Policy Document on Standard Procedure for Periodic Maintenance Planning is approved by the Minister recently and is in application from November 2005. According to this document periodic maintenance refers to a planned cyclic maintenance strategy for resealing bituminous surfaced roads, and takes into account their present condition, age, geographic location, traffic and their strategic importance.

Activities under periodic maintenance are resealing, re-gravelling, marking in road surface and painting in steel structures. Periodic maintenance is carried out at the interval of 5 – 8 years.

National average cost for periodic maintenance in NRs. 1 million per kilometer.

3.5 Bridge Maintenance

A separate Bridge Unit was established in DOR in 1994 with overall goal of developing and managing the bridge assets efficiently. Its objectives were as follows:

Establish, develop and update Bridge Data Base.
Develop and plan a budget for bridge works
Establish and develop a Maintenance Management System
Develop National Standards for bridge desing and specifications
Develop bridge expertise within DOR and in the private sector
Undertake bridge design and pilot projects (new and rehabilitation)

3.6 Budget Trend for Maintenance

Table below shows the budget trend for SRN maintenance. Maintenance budget is covered under regular budget and development budget. Substantial increment in budget is seen from FY 2003/2004 with the increase of 82%, mainly due to extra RMDP routine maintenance fund and Nepal Roads Board fund. Now, with the introduction of NRB fund, the maintenance budget is sufficient for routine and recurrent maintenance. But budget for periodic maintenance is still not sufficient, which is dealt in chapter 7.

Table 4.1: DOR Budget Trend for Road Maintenance

	98/99	99/00	00/01	01/02	02/03	03/04	04/05	05/06
	disbursed	disbursed	disbursed	disbursed	disbursed	disbursed	disbursed	Disbursed
Routine Maintenance
Regular budget - 130+555		41,344,000 47,126, 000 60,300, 000		71,041 ,000	62,461, 595
Regular budget - 130 only						21,794,000	33356000
RMDP for routine maintenance						52,403,380
Other maintenance
Development Budget - BH 555		359,310,000 410,678,000 422,500,000 450,806,000					297,572,000 250,000,000 440,000,000 452,592,000
Nepal Roads Board						129,422,620
Nepal Roads Board -							50,000,000 303,552,000 264,382,000
Periodic & Rehabilitation						150,000,000
Total maintenance budget		400,654,000 457,804,000 482,800,000 521,847,000					360,033,595 653,620,000 743,552,000 716,974,000
Increase in %		14%	5%	8%	-31%	82%	14%	-4%
Roads under maintenance	3,256	3,327	3,471	4032	4,270	4,288	4,005	4,005
Budget per km road	123,051	137,603	139,095	129,426	84,317	152,430	185,656	179,020

Source: IARMP, DOR, 2005

3.7 Length Workers for Routine Maintenance

SMD have employed about 2200 length workers through out the country in SRN. They are trained and oriented for the work they have to perform. They are given clear identity of orange color jackets mentioning "Sadak Bibhag" (Department of Roads). Training takes place every year and interactions are made. A Nepali Handbook is prepared with illustrations, for the works they need to perform are distributed to them. They are given simple hand tools and accessories like shovel, axe, peak, hammer, sickle, wheelbarrow, spade, broomstick, traffic signal, traffic cone, rain boot, helmet, raincoat and glove.

Group Accident Insurance is provided to them. They are often the road neighbors and their employment is a positive benefit to the care of the road as a whole.

DoR SMD has observed that length workers are highly motivated in their work due to the regular income provided by the job in rural areas where such opportunities are rare. There are often road neighbors, too, and their employment is a positive benefit to the care of the road as a whole.

This system has helped to contribute towards the poverty alleviation for about 2200 poor people of the country. The length workers system is mainly focused on:

Improving road maintenance.
Increasing income-generating opportunities for the poor and disadvantaged groups from labor-based road maintenance operations.
Increasing employment of women as length workers and supervisors.
Minimizing risks of negative impacts of roads on the poor and
Improved coordination between road neighbors and DOR

However there is some contradiction in employing the length person. These length persons are contracted on yearly basis, but they are on paid on daily basis. According to the financial regulation (FAR) for daily-based employment one-year contract can not made either they are to be employed permanently. But no problem is encountered in this matter. The employment of length person should be institutionalized within the system of DOR.

Length workers are conflict-resistant, they are allowed to work at all the time and recognized and respected by road users and others. For other works, especially the contractors, they have to make the hidden arrangement with the rebels to be allowed to work.

3.8 Successful Practices In Operation Within Nepal & Prospects For Replication

Length person system introduced for routine maintenance system is good practice. This system can be introduced in urban and local road in municipalities and DDCs. However regular monitoring of length-person is required for effective execution of routine maintenance works.

Routine maintenance practice through length-person needs to be replicated in RRN. This system of length person was adopted in some of rural roads in two roads in Dhading district during early 90ies, intermittently, not through out the year. Some donor funded rural road projects like DRSP are supporting the DDCs in institutionalizing the length person system for routine maintenance.

Urban roads are also potential for length-person system for routine maintenance. Urban road could be potential for PMMC. But at present municipalities are not strengthened to take up the systematic maintenance, mainly due to the tradition of their focus on new roads, upgrading of roads from earthen to gravel and gravel to blacktopped surface and other municipal activities. After the municipalities are strengthened for planned maintenance, very cautiously some road could be piloted for PBMC, with enough training to the staffs and contractors.

Chapter V

Performance-Based Maintenance Contracts of Roads

5.1 Basic Concept of PBMC

In traditional contracts for maintenance works, the contractor is responsible for the execution of works, which are normally defined by the quantity of works and the contractor is paid on the basis of unit prices for different work items, i.e., a contract based on "inputs" to the works. While this modality often brings improvement over force-account maintenance practices, the results are in many cases still less-than-optimal.

The Performance-Based Management and Maintenance Contract, theoretically, try to address the issue of inadequate incentives. During the bidding process, contractors compete among each other by proposing a fixed monthly lump-sum fee per km of road to be paid to them. It is important to understand that contractors are not paid directly for "inputs" or physical works (which they will undoubtedly have to carry out), but for "outputs," i.e., the initial rehabilitation of the road to pre-defined standards, the maintenance service of ensuring certain quality levels on the roads under contract and specific improvements.

5.2 Management Modality

The monthly lump-sum remuneration paid to the contractor will cover all physical and nonphysical maintenance services provided by the contractor, except for unforeseen emergency works, which would be remunerated separately. The initial rehabilitation works, which are to be explicitly specified by the employer in the contract, would be quoted on the basis of measurable output quantities and paid as performed. In order to be entitled to the monthly payment for maintenance services, the contractor must ensure that the roads under contract comply with the service quality levels, which is specified in the bidding document. It is possible that during some months of initial period, contractor may have to carry out a rather large amount of physical works in order to comply with the required service levels and very little work during other months. Yet monthly payment remains the same as long as the required service levels are complied with.

One fundamental feature of the performance-based contract is that the contractor is responsible for designing and carrying out the actions he believes are necessary in order to comply with the service quality levels stated in the contract. The service quality levels are defined from a road user's perspective and may include factors such as average travel speeds, riding comfort, safety features, etc. If the service quality is not achieved in any given month, the payment for that month may be reduced or even suspended. Under the performance-based contract, the contractor has a strong financial incentive to be efficient. In order to maximize profits, he must reduce his activities to the smallest possible volume of intelligently designed interventions, which nevertheless ensure that pre-defined outputs (measured indicators of service level) are achieved and maintained over time. This type of contract makes it necessary for the Contactor to have a good management capacity. PBMC "management" means the capability to define, optimize and carry out in a timely basis the physical interventions which are needed in the short, medium and long term, in order to guarantee that the roads remain above the agreed service quality levels. The role of the Road Administration and of the employer is to enforce the contract by verifying if the agreed service levels have been complied with, as well as all other legislation and regulations the contractor must comply with.

5.3 Scope of Works and Responsibility

Maintaining a road network includes routine and periodic tasks. Routine maintenance consists of many different tasks frequently necessary to maintain the function of the road (such as pothole repairs, cleaning of drainage, sealing of cracks, cutting of vegetation, etc.). Periodic maintenance consists of predictable and more costly measures of a less frequent nature designed to avoid road degradation (such as resurfacing, asphalt concrete overlays, etc.). Intelligent management, the timely interventions and the adequacy of technical solutions are critical. It is expected that the use of private specialized firms under performance-based contracts will unleash significant efficiency gains, and stimulate innovation in comparison with traditional road administration practices.

Road conditions can be expressed through indicators for service quality levels, and these are used under the performance-based contract to define and measure the desired performance of the contractor. In the Performance-Based Management and Maintenance Contracts, the service level indicators are thus the accepted minimum thresholds for the quality levels of the roads for which the contractor is responsible.

Under the terms of the contract, the contractor will also be responsible for the continuous monitoring and control of road conditions and service levels for all roads or road sections included in the contract. This will not only be necessary to fulfill the contract requirements, but it is an activity which will provide him with the information needed in order to be able (i) to know the degree of his own compliance with service level requirements, and (ii) to define and plan, in a timely fashion, all physical interventions required to assure that service quality indicators never fall below the indicated thresholds. Under the performance-based contract modality, the contractor will not receive instructions from the employer concerning the type and volume of works to be carried out. Instead, all initiative is given to the contractor who should do whatever is necessary and efficient to achieve the quality levels required.

Although design of the works to be carried out is under the responsibility of the contractor, this type of procurement requires good preparation engineering work. It is necessary to prepare a good set of information on the actual conditions of the road. If initial rehabilitation works are required, the employer should define the level of quality (or standard) to be achieved by the contractor for delivery and completion during this initial phase of the contract. If improvement works are sought, a well-designed bill of quantities defining specific outputs for bidders to price and, later on, allow measurement and payment of the contractor, is of paramount importance. Emergency works, although impossible to quantify in advance, will certainly be necessary. To allow bidders to offer prices a unit price bill of quantities (similar for civil works under unit prices) with quantity estimates should be prepared for bidders to price for bid evaluation purposes.

Some emergency works should always be foreseen. Those are meant to remedy unexpected damages, which occur as a result of extraordinary natural phenomena, and which affect the normal use of the road network, or the safety and security of the users. For emergency works, the contract limits the responsibility of the contractor, establishing that the employer will approve execution of services. A separate remuneration based on specific amounts proposed by the contractor for each case, on the basis of volume of works estimated at each time and on unit prices included in the bid and in the contract. A provisional sum is normally set aside for emergency works.

5.4 Road User Satisfaction Level Expected to Improve

The beneficiaries of the new concept are expected to be the road users, the Road Administration, and the contractors or other private sector enterprises. In a wider sense, future generations will be able to benefit from a better preservation of past investments in roads. Road users will be able to know the service level they can expect in retribution for the payments they make for the use of the infrastructure (tolls, tariffs, user fees, taxes, etc.). The Road Administration should benefit by obtaining better overall road conditions at the same level of expenditures. For contractors and other private sector enterprises, the new type of contracts should open up new business opportunities, in which longer contract periods provide a more stable business environment. But it may be the future generations that will perhaps benefit most, since they will not have to pay for the reconstruction of roads destroyed because of a lack of maintenance today.

5.5 Monitoring, Evaluation and Payment

Monitoring and evaluation should be made direct by simple means, such as visual inspections, and simple measurements, which do not require sophisticated equipment. General aspects include the pavement, shoulders, structures, drainage system, right of way and road safety aspects/signaling. However, road roughness is excluded.

RMDP modality of monitoring, evaluation and payment procedure include the formal monthly inspection of general aspects for each 10 km road length included in the contract is carried out based on test sections of one (1) km each. The Project Manager shall determine the location of the test sections. The locations of test sections will be varied from month to month so that each kilometer is tested in a ten-month period.

Each one-km test section is subdivided into ten (5) segments of 200 meters each. The inspection process shall determine, for each segment of 200 meters, if non-compliance exists for any of the aspects to be verified (pavements, shoulders, structures, drainage system, rightof-way and road safety aspects/signaling). Each type of non-compliance receives the following weight factor:

Table 5.1: RMDP Weight Factor for Evaluation of End Out put

Aspect	Weight Factor
Pavement /shoulder/Road side	38
Bridge and other Structures	20
Drainage System	14
Signaling and Road Safety	18
Provision of maintenance services	10
Total	100

Source: RMDP, DOR

For each one-km section tested, the following inspection sheet is filled out during the formal inspection (given in annex).

The agreed monthly payment for maintenance works and services is made to the contractor if he has complied, during the month for which the payment is to be made, with the agreed service quality levels on the road network under contract. Together with his monthly invoice, the contractor will report the result of his own evaluation of compliance with the required service levels, based on his own monitoring system, which is mandatory. The employer or his representative (supervision consultant) through inspections will then verify his statement. If the service quality levels are not met, payments are reduced, based on a schedule given in the contract. Payments may even be suspended, and the contract cancelled, if the contractor fails during an extended period to achieve certain minimum threshold values of service levels. The contract describes the formulas used to calculate payment reduction and potential contract suspensions.

5.6 PBMC Experience and Issues

PBMC in Nepal appears to have originated from suggestions made by World Bank in 2002. It was felt useful for Nepal to experiment with some of the maintenance approaches used in other countries. With inadequate discussion within the DOR, RMDP selected a pilot trial of Butwal – Narayanghat Sector (113 kilometers) of the East-West Highway. PBMC for this road contracted for two years from May 2003 to May 2005. Now two other roads are under the PBMC – Pathlaiya – Fuljore section (73 Km.) under DRO Hetauda and Fuljore – Chaurahawa – section (75 Km.) under DRO Janakpur. Both the roads are contracted for maintenance for 5 years period starting from July 2005.

Following are the summary of the experiences and issues of PBMC in Nepal:

PBMC was started without enough preparatory works, especially the required training to both DOR staff and the contractors. PBMC is introduced in World Bank and Asian Development Bank financial support, but no institutional support to create compatible environment to implement the PBMC.
Existing length workers are replaced after 9 months of the contract period and both length workers and contractors are not happy. Contractors are not happy because they find other labors in less wage with more working hour. Length workers are not happy because they are given less wage and additional working hour and working stretch.
It is understood as "extended defect liability period " of the contractor. This lead to the perception that contractor repairs only when defects are seen in the road, whereas maintenance is a continuous work of different nature – routine, recurrent, periodic and emergency.
In PBMC, primary monitoring function is contractors "Self Control Unit" and various inspections by the DRO. Non-compliance lead to the financial penalties in the form of reduced payments. The purpose of monitoring and penalties is not to punish the contractor or reduce the cost, but to ensure that a good standard services is provided. But Nepal's contractors are, in general, not considered to be mature enough for such an arrangement of work on self-controlling mechanism. Full compliance from the contractor or the enforcement of the compliance to ensure the desired level of road standard is difficult to achieve. DOR's management is also not sufficiently mature for this approach.
Positive part of PBMC in Nepal is that it has multi-annual budget against the annual budgetary process of DOR. In Nepal, chronic delays in approval of annual works and lengthy procedures of procuring works have resulted in lack of timely interventions for recurrent maintenance activities like pothole repairs. Therefore there should be no delays in addressing the recurrent maintenance (pot holes repair).

Chapter VI

Roads Board Nepal in Financing Road Maintenance

6.1 Roads Board Concept:

Roads Board concept is now widely in use in many countries. On the way to the commercialization of government activities the Roads Fund creates an extra-budget account. It has the advantage that earmarked revenues (mainly coming from fuel taxes and vehicle taxes) are received and disbursed according to its statues as in private business practices. Secondly for the nation-wide road network secures for the maintenance of all roads in the country. Thus a stable flow of funds is guaranteed and the financing of all classes of the whole "family" of roads is secured including the non-self supporting "baby-roads" (mostly rural roads) which are cross subsidized by the "parent roads" (highways and feeder roads). The Roads Fund allocations for different classes of roads comprise the National Roads (at the range of 65%), Rural Roads (at the range of 25%) and Urban Road (10%). (Metschies 2002).

6.2 Roads Board in Nepal

Roads Board Nepal is established as autonomous body in 2002 under the Roads Board Act 2002. Article 3.1 sates that the Roads Board is established to perform the routine, recurrent, periodic and emergency maintenance (RREPM) of the road and to collect the revenue from toll tax.

All the roads – highways, feeder roads, all black topped urban and rural roads, rural gravel roads fixed by board and the rural earthen road identified by board are under the maintenance area of RBN. Maintenance activities are to be identified in integrated annual road maintenance plan (IARPM) whether particular roads are under routine, recurrent, periodic, rehabilitation, reconstruction or upgrading.

Function, responsibility and authority of the RBN are:

To cause to carry out repair and maintenance of the road.
To collect the too, additional charges that can be levied for the use of roads and to recover penalties under the Act.
Te recommend to Government of Nepal on the matters of fixation of the road too or fuel levy to be collected, additional charges and fines to be collected for plying the vehicle contravening to the specific standards.
To make the suggestions to GON fixation of toll.
To formulate integrated annual plan for repair and maintenance of roads.
To provide funds to the road related agencies for maintenance of roads.
To distribute the toll amount at the prescribed rate to maintain of such a road from where such amount was collected as toll.
To cause to reconstruct, rehabilitate and upgrade the roads as prescribed.
To prepare in order to minimize the expenditures on maintenance of roads as action plan related thereto.
To cause to safeguard the road having selected it in the prescribed basis.
To bear the expenditure required by GON, pursuant to agreement concluded between GON and an agency or organization with a provision that such an agency or organization and GON would bear the funds required for the maintenance of roads.
To make effective the maintenance works of the roads.
To approve annual budget and program of the Board.
To do or cause to do such other works as may be prescribed.

Source of the currently availing are toll tax (road user tax), fuel levy on diesel and petrol and vehicle registration fee. Road user tax is directly collected by RBN, whereas the fuel levy is collected in central treasury in Ministry of Finance (MOF) and channeled to RBN.

It allocates 70% of its resources to strategic road networks through DOR and 30% for local road networks through DoLIDAR. Road Agencies have to provide a minimum counterpart fund of 30% (municipalities) and 20% (DDCs).

RBN is supporting 100 percent for routine and recurrent maintenance in SRN. Whereas RBN provides about 35% of total budget spent for RREPM of LRN. Current fund disbursement from RBN is about 16 % of total required budget for all types of roads – SRN, RRN and UR.

6.3 RBN Planning and Fund Disbursement Schedule

RBN planning preparation starts from February by submitting details of road status and after completion of 5 steps, get the approval from RBN Board in first month of the fiscal year.

Table 6.1: Planning Schedule for RA

S.N.	Activities	Final Date
1	Submission of details of road status including	By the end of Magh
	AADT and road condition by RAs	(Middle of February)
2	Prioritization of roads by RBN	By the end of Falgun
		(Middle of March)
3	Estimation of maintenance need for candidate	By the end of Chaitra
	roads (budget ceiling) and intimation to RAs	(Middle of April)
4	Submission of ARMP by RAs to RBN	By the end of Baisakh
		(Middle of May)
5	Consultation and discussion with DOR and	By the end of Asadh
	DoLIDAR on budget and ARMP by RAs in board	(Middle of July)
6	Preparation and approval of IAP by Board	By the end of Shrawan
		(Middle of August)

Following is the fund disbursement schedule from RBN to RAs:

The release of first installment as advance after signing MOU: 25% of the total cost.
After completion of 25% of work and accomplishment of 50% of work by counterpart fund or depositing the equivalent amount by RAS.: 30%
After accomplishment of 75% of assigned task and either spending all matching fund or by depositing equivalent amount of the total work: 30%
After completion of work completion report: 15%

6.4 Estimated Fund Requirement

RBN has estimated the total road length eligible for RBN funding for current fiscal year 2063/2064 (2006/2007) as follows:

National Highways and Feeder Roads:	4860 Km.
Bituminous Urban Road:	980 KM.
Bituminous Rural Roads	357 Km.
Gravel Rural Roads with AADT >40	1165 Km.
Earthen Rural Roads with AADT>15	2385 Km.
Total eligible roads for RBN funding:	9747 Km.

Estimated fund requirement for 3 years, starting from current fiscal year is estimated to be NRs 2.22 billion in year 1, NRs 2.31 billion in year 2 and NRs 2.42 billion for year 3. This figure is quite high compare to what RBN is receiving in last two fiscal years. Budget received by RBN and its disbursement is sufficient only for 16% of its total requirement.

Table 6.2: Total Estimated Fund Requirement

S.N	Maintenance Activities	Year 1	Year 2	Year 3
1	Road Maintenance & Capital work costs	2072310675	2155695470	2254106243
2	Road safety Measures	20723107	21556955	22541062
3	Axle load controlling measures	5180777	5389239	5635266
4	R & D	20723107	21556955	22541062
5	Bridge works	20723107	21556955	22541062
6	Total Road Work Cost (RWC)	2139660773	2225755574	2327364695
7	Administrative Cost	855586431	89030223	93094588
	Total cost	2,225,247,204	2314785797	2420459283

Source: RBN, 2006

6.5 Projected Revenue

Following tables show the sources of road related revenue collected through MOF.

Table 6.3: Current Department of Transport Management Revenue

S. N.	Heading No.	Revenue Heading	Amount
1	1-1-02-50	Vehicle Tax	796,780,885.00
2	1-1-03-14	Vehicle Income Tax	52,642,592.00
3	1-1-05-10	Firm Registration Renwal	180,570.00
4	1-1-05-41	Vehicle Checkup Charge	229,416,803.00
5	1-1-05-99	Other Charges	945,000.00
6	1-1-07-60	Road Permit Charge	125,752,167.00
7	1-1-05-43	UR Maintenance Charge	151,899,595.00
		Total	1,357,617,612.00

Data provided as per the DOTM record Fy 2061/062

Source: RBN, 2006

From the above seven revenue headings, only the revenue from budget head 1-1-05-43 (Urban Road Maintenance Charge) is provided to RBN.

Table 6.4: Revenue from Current Fuel Tax (2005/06)

| | S. N. Description Revenue | | Rate | Fuel (KL) Amount | | | |------------------------------------------------------------|---------------------------|-------------------------------------------------|---------|------------------|---------------|--| | | | | (Rs/KL) | | | | | 1 | Diesel | Custom with other taxes, special
tax and VAT | 7810 | 310991 | 2428839710 | | | 2 | Petrol | Custom with other taxes, special
tax and VAT | 18300 | 76481 | 1399602300 | | | | | | | Total | 3,828,442,010 | | | Total Current Revenue from Road Sector
5,186,059,622.00 | | | | | | |

Source: RBN, 2006

This revenue is collected by MOF through the respective custom offices. RBN is receiving Rs. 500 per kiloliter and Rs 1000 per kiloliter from diesel and petrol respectively. Thus the total collected road related revenue in the year 2005/2006 is NRS. 5,186,059,622.00

Referring to the colleted road related revenue in the year 2005/2006, RBN received only NRs 330 million only. This amount I much more less than the required amount for the purpose of maintenance of roads.

6.6 Issues of RBN

The functions of RBN are to collect and disburse the necessary level of funding from the appropriate sources and to ensure that these funds are used in accordance with its policies. According to the fundamental principles of RBN, its roles emphasizes predominantly on financial than technical. RBN is now not able to receive all the funds that need to invest for the maintenance of the road.RBN is basically for generating the fund and investing in road maintenance as extra-budget account, not dependant on annual budgetary procedure. Procedural contradiction is visible the system, it gets budget from government's treasury. RBN directly collects toll charge in its account.

Road related revenue is at the range of 6 billions of rupees. The concept of return of investment has to be dealt seriously and cost recovery mechanism should guide the building of roads, mainly in SRNs. We have developed institutions as only spenders not earners, while each work is now becoming increasingly concerned with commercial viability. Dependency syndrome in road maintenance should be avoided at least on SRNs.

RBN needs all level of support and credibility from its customer base and hence it should represent the interests of the road users. Therefore road user should be the majority of the representatives. RBN is not fully understood by all levels of the road users. It should work to create a greater understanding to the wider community and other stakeholders. It should launch various awareness generating programs like organizing public meeting, publishing regular newsletter, providing regular interviews in media (radio, television and newspapers).

RBN's fund allocation to SRN through DOR is 70% whereas fund allocation to RRN and UR is 30% through DoLIDAR and to DDC and municipalities. Numbers of LRNs to support are more and the process is lengthy. Municipalities have to provide 30% and DDC has to provide 20% of matching fund to receive RBN fund. Monitoring from RBN side is also inadequate. One UC chairman during the workshop reported that he is unaware of the full information in the program of LRN funded by RBN. Transparency is lacking due to inadequate monitoring from RBN to LRNs.

The statues of RBN do not follow the international concept of "commercial (company) environment " of road revenue generation and funding. It is functioning like "government ministry environment". As envisaged in its objective, it should be practically autonomous for generating road related revenue and funding the road maintenance.

Road maintenance needs to be taken up as a priority management function and thus be carried out as a campaign. It is not only maintenance, but also an asset management. Project approach of maintenance should be avoided. it should be a regular process. Stable fund only can ensure its sustainability for which the proper management of user charges is a key area of consideration. User charge should not be treated as tax.

Chapter VII

Backlog in Road Maintenance & its Implication

7.1 Backlog in Maintenance and It's Implication

The extensive road networks of Latin America and the Caribbean, valued at over 350 billion US\$, show alarming signs of neglect and decay. More than 16 billion US \$ are being wasted annually due to the absence of adequate road maintenance. Individual countries in the region are losing between 1% and 3% of their annual GNP due to an unnecessary increase in vehicle operating costs and loss of road asset value alone. (Zietlow et el, 2004). This devastating situation is not only true for Latin American countries, but can be found in other developing countries and some developed nations as well.

Nepal also has to invest heavily in rehabilitation due to backlog in maintenance. RMRP jointly funded by World Bank, ODA, SDC and UNDP during 1994 – 1998 invested for rehabilitation of 454 kilometers and 681 kilometers of backlog maintenance to bring the road back into maintainable condition.

After the SMDs planned maintenance effort in DOR. Routine and recurrent maintenance is improved. After the establishment of RBN, planned maintenance system is reinforced with its support through funding and monitoring, especially in routine and recurrent maintenance. Since last two years, routine and recurrent maintenance is fully funded by RBN.

7.2 Current Backlog in Road Maintenance

During last FY 2062/2063 (2005/2006) total of 3866 kilometers was considered routine maintenance. Total budget of NRs. 93.96 million is allocated and disbursed from RBN. Recurrent maintenance is divided into two parts recurrent minor and recurrent major. Budget required for recurrent minor is funded by RBN and recurrent major is funded partly by RBN fund and partly under DOR regular budget. Total 3669 kilometers of road was under recurrent maintenance (minor), which was fully funded by RBN with the budget of NRs. 112.86 million. Similarly total length under recurrent maintenance (major) is 4020 kilometers. Total cost required was NRs.155.926 million. This cost was funded partly by RBN with NRs. 58.59 million and partly by DOR regular budget (budget head 48-4-555) with NRs. 97.33 million.

Total length requiring rehabilitation of SRN is now 258 kilometers. Budget required for rehabilitation is NRs. 774 million. Thus the backlog in periodic maintenance increases the length of rehabilitation and ultimately to reconstruction. This will have direct implication of substantial increment in investment. Billions or rupees is invested to rehabilitate the roads through the projects like Second Road Improvement Project (SRIP), Third Road Improvement Project (TRIP), Road Maintenance and Rehabilitation Project (RMRP), Eastern Region Road Maintenance Project (ERROM), Arniko Highway Improvement Projects etc.

Table 7.1: Budget Estimate for Routine, Recurrent, Emergency and Periodic Maintenance

	Type					Routine, recurrent,
	of		Length			periodic, emergency				Periodic				Total Amount
Road	Pave	2002	2005	2015	Rate		Amount		Rate		Amount			(million)
	ment	(km)	(km)	(km)	NRs/		(million)		NRs/		(million)
					km		2002 2005 2015		km			2002 2005 2015 2002 2005 2015
	BT		3237 3435		4187 54000	175	185		226 108000	350	371		452 524 556		678
	GR	823	873		1065 72000	59	63	77	14000	115	122		149 174 185		226
SRN	ER	801	850		1036 19200	15	16	20	50000	40	43	52	55	59	72
	Total		4861 5159	6288		249	265	323		505	536		653 754 800		976
	BT		961 1020		1243 54000	52	55		67 108000	104	110		134 1561 165		201
	GR	652	692		843 72000	47	50		61 140000	91	97		118 133 147		179
UR	ER	585	621		757 19200	11	12	15	50000	29	31	38	40	43	52
	Total		2198 2333	2843		110	117	142		224	238		290 334 355		433
	BT	342	363		442 54000	18	20	24	10800	37	39	48	55	59	72
	GR		3728 3956		4823 72000	268	285		347 140000	522	554			675 790 839 1022
RRN	ER			17158 18208 22196 15000		257	273	333	0	0	0		0 257 273		333
	Total			21228 22527 27461		544	578	704		559	593			723 1103 1171 1427
G. Total				28287 30018 36592		904		959 1169				1288 1367 1666 2192 2326 2835

Source: Deuja (2005)

Table 7.2: Budget Estimate for Routine, Recurrent, Emergency, Periodic and Rehabilitation Maintenance

	Type						Routine, recurrent,
	of		Length			periodic,				Rehabilitation Amount (million) 2002 2005 2015 2002 2005 2015 412 6 7 6 6 425 41 5 5			Total Amount
Road	Pavem					emergency,							(million)
	ent	2002	2005	2015			Amount (million)	Rate
		(km)	(km)	(km)				NRs/k
						2002 2005	2015	m
	BT	3237	3435	4187	524	556	678	6	388		502	913		969 1191
SRN	GR	823	873	1065	174	185	226	0			8	181	192	234
	ER	801	850	1036	59	59	72	0			8	62	65	80
	Total	4861	5159	6288	800	800	976		401				519 1155 1226 1494
	BT	961		1020 1243	156	165	201	2	38		50	194	206	251
	GR	652	692	843	138	147	179	0			6	143	152	185
UR	ER	585	621	757	40	43	52	0	4	5	6	45	48	58
	Total	2198		2333 2843	334	355	433		48	51	62	382	406	495
	BT	342	363	442	55	59	72	1	8	9	11	64	68	82
	GR	3728	3956	4823	790	839	1022	1	45	47	58	835		886 1080
RRN	ER		17158 18208 22196 257			273	333	0	103	109	133	360	382	466
		Total 21228 22527 27461 1103 1171					1427		156	165			202 1259 1336 1629
	G. Total		28287 30018 36592 2192 2326				2835		605	642			782 2796 2968 3617

Source: Deuja (2005)

7.3 Issues in Backlog Maintenance

Backlog in maintenance has more indirect implications. Vehicle operation cost (VOC) increases in poorly maintained roads. Design speeds cannot be maintained. Fuel consumption rate of vehicle increases. Breaking down of vehicle may result due to deteriorated road surface. Repair and maintenance cost of vehicle increases. Difficult and hurdle in smooth driving and increase in vehicle operation cost also cause the user and social dissatisfaction.

Thus backlog in road maintenance has multi-dimensional and chain implication. Periodic maintenance backlog is the major problem of SRN. Therefore priority should be given to reduce the backlog in maintenance.

Chapter VIII

Rural and Urban Road Maitnenance

8.1 Government Policy

DOR is undertaking the responsibility of strategic roads network. But, traditionally DOR was undertaking the urban roads and district roads (local roads too). National Transport Policy 2058 (2001) states in its preamble that highways and feeder roads linking district headquarters will be the responsibility of central agencies. Roads will be developed within the district and urban and the local bodies will take the responsibility of these roads. These roads have to be handed over to the respective institutions. Urban roads are to be handed over to municipalities and local roads are to be handed over to DDCs.

Municipalities are also developing the roads. They contract the pavement of the roads to the contractors. But they have not developed the maintenance mechanism within the institution like the DROs. They do not have their own maintenance equipment and experienced manpower for the road maintenance.

Maintenance is given high priority in the government policy. In the guidelines of implementation of district level roads, it is mentioned that "road which can be maintained by user committee with generating local resources or toll tax only be selected for construction of district level road" (cl.1, Jha), cl. 3, Ka states that " peoples participation shall be used for the maintenance of the different sector of the road."

8.2 Rural Road Maintenance Early Initiatives

Road Maintenance Committee was formed in 1989 in Palpa District. This might be the first maintenance initiative in district level. Committee member comprises of the vehicle owner (tractor was the major mode transport) and shopkeepers. This committee was responsible for routine and preventive maintenance. First year this committee performed the maintenance works. But second year onward this committee become slowly defunct and did not performed the expected maintenance tasks. Major reason for the dysfunction of the committee was that responsibility of generating resources. After failure of this concept DDC Palpa and Palpa Development Project (PDP) decided to share the 50% of maintenance cost by DDC and PDP. This mechanism lasted till the end of the PDP in 1997. DDC Palpa generated toll tax in three roads. Collected fund was 60% sufficient to meet its share of maintenance cost. That is 30% of the total maintenance fund requirement.(Shrestha, 1993)

Maintenance Initiative was taken in Dhading in 1993. DDP/GTZ supported the construction of two roads in Dhading district. DDP supported the DDC Dhading for bearing the maintenance cost in decreasing order. In FY 1993/1994 it provided 100% maintenance cost, 75% in second year 1994/1995, 50% in third year 1995/1996, 25% in fourth year 1996/1997 and withdrew its support from 1996/1997 onward. Dhading DDC, in its two roads – Dhadingbesi – Salyantar and Bhimdhunga – Lamidanda Road, introduced the system of toll tax collection and routine maintenance. Length persons were employed for 6 months in a year. Three months during monsoon (Asadh, Shrawan, Bhadra) and Aswin, Magh and Jestha. (Shrestha, 1993)

8.3 Rural Road Maintenance Issues

DoLIDAR has prepared National Plan for Rural Road Maintenance (NPRRM) in 1999. Detailed program starting from FY 1999/2000 to FY 2006/2007 is prepared. Maintenance activities divided into three categories –routine maintenance, periodic maintenance and rehabilitation for three categories of roads earthen, gravel and blacktopped roads. DoLIDAR has taken maintenance initiative well in advance, immediately after its establishment and prepared the NPRRM 1999.

NPRRM 1999 has calculated the indicative unit maintenance cost and frequency of maintenance intervention. Cost was calculated seven years. But cost indicated in US dollar more or less represents the present cost of maintenance.

Table 8.1: Indicative Unit Maintenance Cost

Type of Road	Routine Maintenance	Periodic Maintenance	Rehabilitation
	NRs. (US \$)/Km.	NRs. (US \$)/Km.	NRs. (US \$)/Km.
Earthen Road	14000 (200)	100,000 (1,500)	300,000 (4,500)
Gravel/WBM	21,000 (300)	150,000 (2,250)	600,000 (9,000)
Black-topped	42,000 (600)	300,000 (4,500)	1,200,000 (18,000)

Source: NPRRM, 1999

Table 8.2: Frequency of maintenance intervention

Type of Road	Routine Maintenance	Periodic Maintenance	Rehabilitation
Earthen Road	Every year	Once in 2 years	Whenever required
Gravel/WBM	Every year	Once in 2 years	Whenever required
Black-topped	Every year	Once in 2 years	Whenever required

Maintenance issue of rural roads is very complex issue. Now there are 22104 kilometers of rural road exist through out the country, excluding SRN and urban roads. But most of these roads are not in complete state. DoLIDAR estimates that roughly 12000 kilometers of roads are operational and rest of about 10 thousand kilometers of roads are not in operation.

DoLIDAR receives NRs. 40 million annually for maintenance and disburse to DDCs. Beside this, RBN provides its 30 percent of budget for the maintenance of local roads including urban roads through DoLIDAR. But these maintenance budget is used in maintenance, rehabilitation and upgrading. Most of the rural roads are not in complete form. Unlike the SRN it is very difficult to distinguish the investment in routine, recurrent and periodic maintenance.

Present policy of the government is to maintain the existing roads. However it is not strictly adopted. Most of the RRNs are undertaken without provisioning the adequate budget. About 60 – 80% of the fund transmitted to VDCs is used in roads without technical knowledge.

Planning, implementation and maintenance of RRNs are under the responsibility of DDCs. Though, substantial funding is made available through DDC from various sources, funding mechanism is erratic and unpredictable. Most of the DDCs have undertaken for the implementation of road than it could actually complete and manage. Political influence is very high resulting in unplanned undertaking of road construction. There are much less roads, which are completed.

Maintenance is not the priority of the DDC and technical staffs are helpless in rationally allocating the budget. DoLIDAR must do a great deal more to educate and develop the understanding among the district level politicians on RRN funding and management. DoLIDAR should launch a focused program in the form campaign on planned maintenance in all districts.

DTO/DDC staffs are not well trained in planned maintenance and various aspects of maintenance activities. Therefore they are in dire need of enhancing the whole understanding of road maintenance.

Though most of the rural roads are unpaved, maintenance of unpaved roads also requires all types of planned maintenance system – routine, recurrent and periodic. As the numbers of vehicle increases rural roads also need pavement either gravel or bituminous according to number of vehicles.

Mountain and settlement management is required for its long-term sustainability of rural roads, especially in hill area. Technical back up is required to develop the rural road. Political interference should be avoided to worsen the situation. Development of roads should be implemented in planned manner.

Most of the RRNs are built through the voluntary contribution of land from the local farmers and they are still paying the land tax of the land they have given to the road. Transfer of ownership of the land of RRN is a major issue to address by the local bodies.

A complete study of all rural roads is required to understand and to take proper action in line with present social, political and economic.

8.4 Urban Roads Maintenance Issues

DROs have identified the some urban roads and included in the SRN inventory. All other roads not included in the DOR SRN inventory within the boundary of respective municipalities are under the urban roads category. Recently DROs have published the public notices in informing the list of SRN within the boundary of municipalities.

However municipalities, even the Kathmandu Municpal Corporation and Lalitppur Sub-Metropolitan City are not in position to systematically governing the maintenance mechanism of the roads under their responsibility. Enough preparatory works is not carried out before handing over the urban roads. Now municipalities are anxious and reluctant to invest in maintenance of the roads. Though municipalities are complaining that they are over burdened by giving responsibility of maintenance of roads without provisioning the separate budget from government, resources however may not be the major constraint.

Traditionally, municipality's major focus lies on other activities – regulating building construction, sewerage construction and many other activities. Road maintenance was not given enough attention. But if analyses is made on road related revenue and the maintenance budget required in urban roads, it is anticipated that, like in most of the high traffic volume SRN, enough revenue is generated in majority of urban roads. Traffic volume is higher in urban roads of municipalities in Tarai area, Kathmandu Valley and Pokhara. In the context of giving the full maintenance responsibility of urban roads to respective municipalities, it is very urgent now to enhance and strengthen their maintenance capacity in terms of institutional aspect, managerial aspect, resources and technical aspect.

Road maintenance is not priority of the municipalities. Planning, implementation and maintenance of urban roads, not included in the SRNs are under the responsibility of municipalities. Like in the case of DDC, substantial funding is made available from municipalities; funding mechanism is erratic and unpredictable.

For the case of urban roads too, DoLIDAR must do a great deal more to educate and develop the understanding among the politicians of municipalities on RRN funding and management. DoLIDAR should launch a focused program in the form campaign on planned maintenance in all municipalities too.

Municipality staffs are not well trained in planned maintenance and various aspects of maintenance activities. Therefore they are in dire need of enhancing the whole understanding of road maintenance. Institutional, management and manpower support has to be provided to the municipalities to improve the road maintenance.

There is no separate utility lane for other services like water supply, telephone, sewerage etc. Further to worsen the situation coordination is lacking among the other service providers (water supply, telephone lines sewerage etc) in urban roads. Road users are much annoyed due to poor maintenance and poor coordination resulting in frequent inconvenience to the traffic. A separate strong coordination unit should be established among these agencies to safeguard the road users. The coordinated approach among the road agencies and other utilities agencies will support in maintenance of urban roads. MLD should take lead role in establishing a strong coordinating unit in each municipality.

Further low level of adherence of traffic rule from vehicle user also causes the inconvenience in urban roads. Therefore to improve the road maintenance of urban roads along with systematic traffic management, substantial strengthening is required to the municipalities in terms of understanding of the issues, capacity building in management, adequate financial resources and knowledgeable human resources.

Chaptert IX

Recommendations

Maintenance mechanism of SRNs under DOR is improving gradually and planned maintenance system is established. However continuous improvement is required further to reach the better and efficient maintenance mechanism. Unlike DOR, institutions responsible for construction, operation and maintenance of LRNs (DDC and municipalities) are relatively new and in need of strengthening the capacity in terms of four aspects - management, technical, financial and manpower. Maintenance plan and policy is formed for LRNs too. But implementation is not taking place, basically due to focus and emphasis of local bodies in upgrading and new construction. Maintenance of LRN is complex as most of the rural roads are not in complete state. Improvement is required in all SRN, LRN and urban roads of different magnitudes. Following recommendations are presented to improve the maintenance of road networks:

General

1 Funding mechanism of commercially viable roads for maintenance with high traffic volume and commercially not viable roads should be separated. Commercial road should be capable of upgrading required to address the increased traffic volume. Rural roads however are non-commercial roads, needs subsidy. High initial cost is not justifiable for the poor country like Nepal. Mostly gradual upgrading is required in rural roads. Though rural roads are mostly earthen surface, needs routine and recurrent maintenance.
2 Process of delineating the DOR responsibility to SRN only, is taking place since last few years, this process should be completed, so that DOR can focus fully on maintenance operation and new construction of SRNs of national importance.
3 The statues of RBN do not follow the international concept of "commercial (company) environment " of road revenue generation and funding. It is functioning like "government ministry environment". As envisaged in its objective, it should be practically autonomous for generating road related revenue and funding the road maintenance. RBN should have full responsibility to regulate the user charge mechanism of meeting the maintenance cost of all SRNs. Maintenance definition and resource required is not matched.
4 Present practice of road user charge in toll charge, fuel (petrol and diesel) and vehicle registration tax is not based on scientific analysis. It is now not sure whether present rate is less, appropriate or more. Carryout the study to review and examine the current fuel levy and toll tax rate and analyze to establish the rationalized fuel levy and toll tax rate and implement accordingly.
5 Provide training to RBN staff and DOR staff on HDM IV to enhance the skill and capacity to update adopt the systematic operation and maintenance system.
6 RBN should substantially expand the programs like public hearing, publish newsletter and interact through media (radio, television, newspapers) to educate the road users and
people that road maintenance is management of national asset and user charge is service charge not the tax imposed, this will widen the understanding among the community, road users and other stakeholders, in turn to receive the support in generating the fund.
7 Monitoring from RBN side is also inadequate. One UC chairman during the workshop reported that he is unaware of the full information in the program of LRN funded by RBN. Transparency is lacking due to inadequate monitoring from RBN to LRNs. Untill the separate arrangement is made RBN, in its funding Adequate monitoring to the works and interaction with UC members should make to create awareness to them.
8 Even in roads constructed with good quality according to the design standard with good quality materials and workmanship, roads deteriorates due to additional axle load. Excess axle load than the road is designed for, is common in SRN and RRN. This is a major problem. Therefore regulating the axle load is very urgent. This issue is to be coordinated with traffic management to enforce the axle load regulation.
9 Road requirement of the country is to be studied considering its social, political and geographical parameters. Various plans are prepared. DOR have prepared 20 year master plans, DDCs have prepared District Transport Master Plans (DTMPs). These master plans have to be reviewed. Issues of strategic roads to cater the planned rural roads are to be considered. Most of the urban roads seem to be inadequate in terms of coverage of built-in area resulting in severe congestion, especially in Kathmandu and Lalitpur. Achievement of master plans has to be statistically checked and analyzed.

Strategic Roads

10 Backlog in maintenance has direct and many indirect implications and has multidimensional and chain implication. Periodic maintenance backlog is the major problem of SRN. Backlog in periodic maintenance is major problem in SRN Therefore priority should be given to reduce the backlog in maintenance. Provide adequate fund for periodic maintenance to minimize the backlog.
15 PBMC was started without enough preparatory works, especially the required training to both DOR staff and the contractors. PBMC is introduced in World Bank and Asian Development Bank financial support, but no institutional support to create compatible environment to implement the PBMC. Institutional support and enough training should be provided to the DOR staffs before piloting the PBMC. Contractors should also be trained and broaden the understanding in order to make the successful PBMC.
16 Review the pilot PBMC implemented in few SRNs in Nepal under RMDP and RNDP and its implications and compatibility with the routine and recurrent maintenance established by SMD in DOR.
17 Though routine maintenance work is improved, prompt routine works by length workers are lacking. Therefore regular monitoring from the DRO staff should be done to follow up the length workers to immediately address the works under routine maintenance. Reward system to be continued to motivate the length workers.

18 Emergency preparedness is to be improved against SRN road closures, especially during monsoon. Vulnerable area identification of road sections will help in tackling such problem. Study of vulnerable area should be carried out in all all-weather rorads.

Rural Roads

15 Funding mechanism is erratic and unpredictable in most of the RRNs. Most of the DDCs have undertaken for the implementation of road than it could actually complete and manage. Political influence is very high resulting in unplanned undertaking of road construction. There are much less roads, which are completed. DDCs should undertake the construction according to five-year investment plan envisaged in DTMP.
16 Policies envisaged in National Strategy for Rural Infrastructure Development 1997 by DoLIDAR and National Plan for Rural Road Maintenance (NPRRM) 1999 are not materialized. Policy has given strong thrust on maintenance issue. But in reality, local bodies, especially for rural roads have neglected the maintenance part. In practice, emphasis is given in new construction and maintenance is not getting enough attention. Continuous follow-up should be done to local bodies to provide adequate road maintenance
17 Since most of the LRNs are not in complete state, maintenance, rehabilitation, upgrading and new construction are mixed. New construction and maintenance function should be separated.
18 Establish a separate road maintenance unit in districts having LRNs under DTO/DDC. Provide support to DTOS/DDCs in improving and establishing systematic maintenance system.
19 Phase-wise institutional strengthening of DTO/DDC can be adopted. District having road length of more than 1000 kilometers in Tarai District and more than 500 kilometers in hill districts are to be given firs priority to immediately strengthening the capacity building of DTO/DDC.
20 Implementation of planned maintenance envisaged in NPRRM should be given the priority. Length persons for routine maintenance are to be replicated in rural and urban roads. PBMC should also be introduced in urban roads under municipalities as a pilot project.
21 DTO/DDC staffs are not well trained in planned maintenance and various aspects of maintenance activities. Though most of the rural roads are unpaved, maintenance of unpaved roads also requires all types of planned maintenance system – routine, recurrent and periodic. As the numbers of vehicle increases rural roads also need pavement either gravel or bituminous according to number of vehicles. They are in dire need of enhancing the whole understanding of road maintenance and therefore they should be trained.
22 Mountain and settlement management is required for its long-term sustainability of rural roads, especially in hill area. Technical back up is required to develop the rural road. Political interference should be avoided to worsen the situation. Development of roads should be implemented in planned manner.
23 For the case of RRN and UR, DoLIDAR must do a great deal more to educate and develop the understanding among the politicians of districts and municipalities on RRN and UR funding and management. DoLIDAR should launch a focused program in the form campaign on planned maintenance in all DDCs municipalities.
24 Most of the RRNs are built through the voluntary contribution of land from the local farmers and they are still paying the land tax of the land they have given to the road. Transfer of ownership of the land of RRN is a major issue to address by the local bodies.
25 A complete study of all rural roads is required to understand and to take proper action in line with present social, political and economic.
26 RRN's maintenance is included in RBN, it is difficult to address. Demand of all RRN could not be met by RBN,s resource. Further local bodies – DDC and municipality's dependency syndrome for central agency is not improved. Consider revising the RBN's financing to RRN. Explore the alternative financing mechanism to RRN maintenance.

Urban Roads

27 Policy envisaged in National Transport Policy 2000 for arrangement of separate utility lane to distribute sewerage line, water supply line, telephone, and electricity to manage outside the road and footpaths and policy of constructing separate cycle lanes in urban area is not materialized. It should be implemented wherever possible in existing road and should be strictly enforced in planned new urban roads.
28 A separate strong coordination unit should be established among these agencies to safeguard the road users. The coordinated approach among the road agencies and other utilities agencies will support in maintenance of urban roads. MLD should take lead role in establishing a strong coordinating unit in each municipality.
29 No adequate road width exists in many of the urban roads. Many of the urban roads are not maintained promptly in time. Road users and the road neighbors are irritated with dust and potholes. Municipalities are to be strengthened. Further level of adherence of traffic rule from vehicle user also causes the inconvenience in urban roads. Therefore to improve the road maintenance of urban roads along with systematic traffic management, substantial strengthening is required to the municipalities in terms of understanding of the issues, capacity building in management, adequate financial resources and knowledgeable human resources.
30 Municipalities have no adequate resources in terms of equipment and manpower. But most of the urban roads could be commercially viable and generating the revenue required for its maintenance, upgrading and rehabilitation. Establish a separate road maintenance unit in municipalities and provide support for taking up systematic maintenance system. Municipalities could also be categorized and supported in phasewise manner.

Chapter X

Policy Action Matrix

S.N.	Constraints	Recommended Action	Activities	Indicators of Achievements
Policy
1	Lack of awareness and seriousness in decision making level on reviewing and preserving the asset invested in infrastructures	Amend policy on evaluating the asset value of roads on periodic basis.	Form task force/assign study on regular basis to determine the updated road asset value.	Information/data ava on investment on roa level of concern incr adequate attention pa preserve asset
2	Accumulation of backlog maintenance increasing every year due to inadequate fund allocation	Amend policy to minimize the backlog maintenance,	Propose adequate budget and allocation of required budget	Periodic maintenance place every year in required length and backlog maintenance minimized
3	Lack of database on commercially viable roads and social (baby) roads requiring subsidy	Amend policy funding mechanism of commercially viable roads and subsidy roads	Assign the study	List of commercially viable roads and subs roads are prepared
4	Absence of rationalized fuel levy, whether present rate of levy is less or more in relation to the maintenance financing.	Amend policy of reviewing rate of fuel levy on periodic basis (5 years)	Form task force/assign the study, analyze the rationalized rate	Report on review of present fuel levy and recommendation ava for periodic update

S.N.	Constraints	Recommended Action	Activities	Indicators of Achievements	Responsible Agencies	Time Frame
5	Lack of proactive maintenance initiatives from RAs (especially for LRNs)	Establish policy of performance based incentives	Establish evaluation system	Proactive initiatives take place, timely plan prepared	RBN, DoLIDAR, DOR	Intermediate
6	Very lengthy process of obtaining maintenance fund	Avoid release of fund through GON general process to RBN	Channel the allocated fund directly to RBN	Fund available in timely basis without much hassle	MOF, NPC,	Immediate
7	High rehabilitation cost in RRN unpaved roads	Make policy decision to stop operation vehicle during rainy season in earthen roads	Enforce the system to stop plying vehicle during monsoon in earthen roads	Damage due to vehicle movement during rainy season in earthen road reduced/stopped	DoLIDAR, DDCs, VDCs	Immediate
8	Frequent damage and high maintenance and rehabilitation cost in hill RRN	Establish policy to operate the in terms of weight and size of vehicle compatible with geometric design standard of hill RRN and its road surface	Enforce the policy accordingly, supplemented by the awareness to RAs and vehicle entrepreneurs	Minimization of frequent damage of road and breakdown of vehicle, smooth operation of vehicle enhanced in hill RRNs	DoLIDAR, RBN, DDCs, VDCs	Immediate
9	High investment in RRN is unnoticed, people, decision makers and politicians are ignoring the wastage of scarce national treasury	Make decision to study to determine the investment made so far and present value of RRN asset value	Carry out study to determine the investment made so far and present value of RRN asset value	Finding available on investment of RRN from all sector and the extent of deterioration took place	MOF, DoLIDAR, Donor	Immediate

S.N.	Constraints	Recommended Action	Activities	Indicators of Achievements	Responsible Agencies	Time Frame
	10 Though road closure, especially during monsoon is reduced, emergency preparedness system in SRN is inadequate.	Establish policy of conducting the study of vulnerable area identification on priority based on AADT and strategic importance	Carryout vulnerable area assessment in SRNs to improve emergency maintenance preparedness	Vulnerable area identified, especially during monsoon, program made accordingly, emergency preparedness improved, road closure minimized	DOR, donor	Intermediate
	11 PBMC pilot phase application not viewed as a successful in Nepal	Establish policy of enough preparatory works and develop skill for the new concept before its application	Carryout training to related manpower and provide institutional support and exposure to the similar program elsewhere.	Skilled manpower available to adopt and implement new concept.	DOR, Donor	Intermediate
	12 Faster rate of road deterioration due to excess axle load	Formulate and amend the policy of not allowing the vehicle than the road is designed for	Publish the design load of all the roads and inform the road users	Excess axle load vehicle do not ply in the road and road life cycle maintained	RBN, DOR, DoLIDAR	Intermediate
	Institutional
13	RBN and user charge concept is not fully understood by road users,	Include massive programs of public awareness for first 2 years in RBN's annual program	Expand public programs – public hearing, programs on radio, television and newspaper	Willingness of user increased and concern on maintenance among road user increased	RBN	Immediate

Constraints	Recommended Action	Activities	Indicators of Achievements	Responsible Agencies	Time Frame
14 Inadequate facilitating role from DoLIDAR in guiding, monitoring RAs (DDCs & Municipalities)	DOLIDAR/MLD/GON decision to strengthen the maintenance unit	Strengthen the Maintenance Unit in DoLIDAR,	Increase in present manpower in maintenance unit	DoLIDAR	Intermediate
15 Absence of RA willingness in maintenance especially in LRN	Prepare program of training, guiding, follow-up and monitoring to DDCs and municipalities	Conduct training & monitoring of maintenance activities	RAs willingness and proactive initiatives increased	DoLIDAR	Intermediate
16 Inadequate maintenance of urban roads under municipalities	MLD/DoLIDAR/GON decision on strengthening municipalities, seek donor support	Strengthen municipalities in institutionalizing maintenance system	Planned maintenance of urban roads take place	DoLIDAR, Municipalitie s	Intermediate
17 RBN's time (more than SRN) and effort required for RRN, whereas it allocates 30% fund to RRN, it seems practically difficult to cover RRNs maintenance issues	Consider revising the RBN's financing to RRN	Explore alternative financing mechanism of RRN maintenance like provide 30% block grant to LRN	Appropriate decision made	MOF, NPC, MLD	Intermediate
18 Confused general perception that paved (gravel or blacktopped) road is not economically justifiable for RRNs.	Decide to carry out study on inter-dependent issue of initial construction cost of earthen roads, gravel roads and its maintenance, vehicle operation cost and to establish the threshold in terms of numbers of traffic	Assign the study	Finding available to adopt the pavement upgrading theory suitable to Nepal	DoLIDAR,	donors, NPC. Intermediate

Constraints	Recommended Action	Activities	Indicators of Achievements	Responsible Agencies	Time Frame
19 Erratic funding of RRNs, most of the roads is in incomplete state, many roads undertaken.	Abide by the investment plan envisaged in DTMP	Follow up by DoLIDAR Roads undertaken are	completed as planned and road is undertaken for construction according to the resources available	DDC, DoLIDAR	Immediate
20 Farmers, who contribute their land for rural road are still paying land tax	Coordinate with district land revenue office for transfer of land, form a committee.	Assign the cadastral survey to transfer the land ownership	Road land is delineated; farmers do not pay the land tax for which they have donated.	DoLIDAR, DDCs, DAO	Intermediate to long term
21 Frequent of digging of urban roads, creating congestion and inconvenience of traffic	Form a strong coordination unit in each municipalities	Enforce the policy of separate utility lane wherever possible in existing roads and strictly apply in new urban roads.	Urban roads condition improved and separate utility lane provided in new urban roads.	MLD, DOR, DoLIDAR, Municipalites	Intermediate to long term
Administrative and Others
22 Input of RBN representative board members, not to the policy matter, limited to and focus of allocation of budget.	Prepare appropriate criteria/ requirement suitable for the specific representing institution and circulate to respective insti tution before the nomination.	Set the terms and duration of representation, Follow-up to respective institution	Representation of knowledgeable board members. Input on policy improvement from board member enhanced.	RBN	Immediate

Constraints	Recommended Action	Activities	Indicators of Achievements	Responsible Agencies	Time Frame
23 Road maintenance not taking to the extent it is anticipated and mentioned in PBMC agreement.	Emphasize in enforcing the criteria and end output set forth in the contract document	Review PBMC system, provide training to DOR staffs and contractors, introduce monitoring support	Maintenance take place as envisaged in the contract agreement, better quality road	DOR, DRO, Concerned projects (RMDP, RNDP)	Immediate
24 Contractors tendency to carry out recurrent maintenance at one time, not addressing the in cyclic order	Enforce the implementation of recurrent maintenance in numbers of cycles as mentioned in contract	Create awareness to the contractors to carryout the recurrent maintenance in different cycle	Recurrent maintenance in cyclic manner. Pot hole free road and smooth operation of vehicle and user satisfaction attained	DOR, RBN	Immediate
25 Routine maintenance is improved, however not to the extent it could be attained	Establish award system for better performed length persons	Establish evaluation system	Routine maintenance improved as outlined in agreement between length-person and DOR	RBN, DOR, DRO	Immediate
26 The achievement of 20 year road master plan and DTMPs are not known	Prepare the TOR to assign the study, whether plans were implemented and the reason of constraints	Assign the study to statistically check and analyze the previous plan	Assessment and evaluation is available, will be helpful in future planning of roads.	DOR, DoLIDAR	Intermediate
27 DTO/DDC, municipalities staffs not trained in planned maintenance and mountain and settlement management for hill roads	Strengthen DTO/DDC and municipalities on planned maintenance.	Provide training on planned maintenance and mountain and settlement management	DTO/DDC, municipalities staffs are trained on planned maintenance and planned maintenance take place	RBN, DoLIDAR	Immediate

S.N.	Constraints	Recommended Action	Activities	Indicators of Achievements	Responsible Agencies	Time Frame
	28 Present maintenance cost seems higher	Adopt the system of timely study and research, activate existing unit of Road Agencies e.g. HMIS/DOR	Conduct study/ research; compare maintenance system of other countries and within the country.	Optimal maintenance cost is assessed and innovation in maintenance system achieved.	RBN, DOR, DoLIDAR	Intermediate to long term

Note:

Immediate: Within 1 year Intermediate: within 3 years Long term: 5 years and more

REFERENCES

Aegerter A. & Dr. O Bosshardt (1988) Maintenance of the Transport Infrastructure in Nepal I+D Consult Ltd. Prognos AG, Basle.

Burmingham S. and Stankevich N. (2005), Why Road Maintenance is Important and How to Get It Done, Transport Notes TRN-4, the World Bank, Washington DC.

Deuja B (2005), Draft Final Report on Institutional Development, Transport Connectivity Sector Project, TA 4347-NEP, ADB, Kathmandu.

DHV (2006), Managing of the Roads Sub-Sector in Nepal: Institutional Position Paper (Draft), RMDP, DOR, Kathmandu.

DOR (1995), The DOR Strategy, Departmental Policy Document, Department of Roads, Kathmandu.

DOR (1999), Road Maintenance: Definitions and Activities, Department of Roads, Ministry of Works and Transport, Kathmandu.

DOR (2005), Integrated Annual Road Maintenance Plan for FY 2062/2063, Department of Roads, Ministry of Physical Planning and Works, Kathmandu.

DOR (2005), Norms for Routine Road Maintenance (Sadak Niyamit Marmat Sambhar Norms), Department of Roads Kathmandu

DOR (2005), Recurrent Maintenance Norms for Paved Highways and Feeder Roads, Department of Roads, Ministry of Physical Planning and Works, Kathmandu.

DOR (2005), Standard Procedure for Periodic Maintenance Planning, Department of Roads Departmental Policy Document, Ministry of Physical Planning and Works, Kathmandu.

DOR (2006), Manual for Road Length Workers (Sadak Length-workers Sambandhi Hate Pustika), Department of Roads, Maintenance Unit, Kathmandu.

Howell J. (2006), Appraisal of DOR's Experience in the Application of its Planned Maintenance System and performance Based Maintenance Contracting (PBMC). Position Paper prepared under Strengthened Maintenance Divisions Programme, SDC, DOR/MPPW, Kathmandu.

HURDEC (2005), Proceeding of National Consultative Workshop on Rural Road Maintenance Manual, 16 May 2005, DoLIDAR/MLD, Kathmandu.

Metschies G.P. Dr. (2003), Financing, Organization and Participation for Rural Road Networks: The GTZ Experience, Paper presented in Regional Conference on Rural Mountain Transport Infrastructure Development in the Hindu Kush – Himalayan Region organized by ICIMOD and GTZ, 1 – 4 October 2002, Kathmandu

Meyer W.P, Acharya B.N, Aryal R. and Karmacharya B, (1999), Green Roads in Nepal: Best Practices Report, GTZ and SDC, Kathmandu

MLD (2004), Local Infrastructure Development Policy 2061, Ministry of Local Development, Government of Nepal.

MPPW (2000), National Transport Policy, Ministry of Physical Planning and Works, Government of Nepal, Kathmandu.

Roads Board Nepal (2005), Annual Progress Report FY 061/062, Kathmandu

Roads Board Nepal (2005), Roads Board Act 2058, Roads Board Regulation 2060 and Roads Board Directives 2061, Kathmandu

Scott Wilson & I. T. Transport in association with East Consult and SIDeF (2003), Technical and Maintenance Aspects of Rural Transport Infrastructure Development, SRIDP PPTA (TA 3625 – NEP) for DoLIDAR/MLD and ADB, Kathmandu.

Shrestha, H. R. (1993), Proposal for Local Road Maintenance System in Dhading District, Dhading Development Project/GTZ, pp 7 – 8, Kathmandu.

Shrestha H. R. (2000), Touch-base Study on Local Road Committees in Palpa, SIDeF, study assigned by LISP/HELVETAS, Palpa.

Upadhyaya B. (2006), Gramin Purbadhar Bikasma Yojana Ra Budget Phalaphal, Karyanwyan Behal (Enough plan and budget in Rural Infrastructure Development, No Implementation). Kathmandu

World Bank (2004), India High Financing, Energy and Infrastructure Sector Unit, South Asia Region, Report No. 30363-IN, Washington.

Zietlow Gunter J. and Bull Alberto (2004), Reform of Financing and Management of Maintenance: A New Generation of Road Funds in Latin America. Paper presented in XXI World Road Congress, 3 - 9 October 2004, Kuala Lumpur organized by International Road Federation (IRF), UN-Economic Commission for Latin America and the Caribbean (ECLAC) and GTZ.

Annex 1: List of Contacted Persons and Discussion Held

1	Bed Kantha Yogal,	Project Coordinator, RMDP, DOR
2	Bhairab Bogati, Engineer,	Engineer, PWD Road Unit, Kathmandu Metropolitan Corporation
3	Bhim P. Upadhyaya,	SDE, DoLIDAR
4	Bimal P. Subedi,	Unit Chief, SMD, DOR
5	Birendra B. Deuja,	Transport Specialist
6	Bishwombhar Pahadi	RBN Unit, DoLIDAR
7	Chandra Subedi,	Maintenance Unit, DOR
8	Dipak Man Singh,	SDE, Ministry of Physical Planning and Works
9	Dipak Nath Chalise,	Executive Director, Roads Board Nepal
10	Guru Dutta Adhikari	Overseer, DTO/DDC, Gorkha
11	Jaggan Nath Ojha,	DoLIDAR
12	Kamal Pandey,	DDG, Planning and Design Branch, DOR
13	Muna Pradhan,	Engineer, SMD, DOR
14	Pawan K. Shrestha,	SDE, DoLIDAR
15	Pradip Raj Pant,	SDE, DRO/DOR, Kathmandu
16	Prakash Thapa	SDE, District Technical Office DDC, Morang
17	Raju Krishna Aryal	Engineer, DOR, Dang, DRO
18	Ramesh Bista	DDG, Maintenance Branch, DOR
19	Ramesh Nath Bastola,	Administrative and Finance Director, Roads Board Nepal
20	Rudra Prasad Gautam,	Chief, Public Works Division, Lalitpur Sub-Metropolitan City
21	Shyam Mani Gautam,	GIS Division, KMC
22	Sudarshan Shrestha,	Technical Director, Roads Board Nepal
23	Surya B. Rana Bhat,	Engineer, DRO, Lalitpur
24	Suman Shrestha	Senior Overseer, DTO/DDC, Gorkha
25	Subodh Sapkota	Engineer, DRILP/DTO, Gorkha
26	Tuk Lal Adhikari,	Engineer/Director, ITECO Consultants

Annex 2: Dor Strategy – Policy Options And Key Measures

Ref Policy Options/Key Measures Status at 01/12/94 1.0 Decentralize the Administration of the Network 1.1 Complete the classification and referencing of the main Completed. Strategic roads, identify and introduce the concept of strategic/core Network of some 5,300 networks. km. made the main responsibility of DOR. 1.2 Liaise with the World Bank, UNDP and Helvetas for On-going. strengthening the DDCs. 2.0 Establish a Network Planning and Monitoring Capability in DOR 2.1 Complete and codify in DOR the Working Papers on 85% complete. "Road Referencing and Inventory" and "Road Management Data." 2.2 Set-up a functioning Planning Branch in DOR Completed. Headquarters and determine the requirements for a Highway Management Information System. 2.3 Train and assist the Planning Branch to carry out annual On-going. roughness and visual pavement distress surveys on bitumen roads. 2.4 Set-up and establish in the Planning Branch a computer System set-up, data input based Highway Information Data System providing continuing.








"query" information.
2.5 Assist the Planning Branch in preparing, storing and 28% complete. updating network level inventory, pavement condition, and traffic and road closure data.
2.6 Resolve problems with the automatic traffic loggers and Problems resolved, data install additional loggers. Arrange data transfer to HQ. collection continuing.
2.7 Establish in the Planning Branch a programme of vehicle On-going. classification, origin & destination and axle load surveys.
2.8 Develop with the Planning Branch a construction and 35% complete, data maintenance cost databank and install it as a central Cost collection on-going. Module in the HMIS.
2.9 Install/develop analytical modules to support the Due to commence preparation of annual and rolling periodic maintenance January, 1996 programmes as the second stage of the HMIS.
2.10 Assist DOR in developing monitoring tools and On-going. performance indicators and provide support for monitoring DOR Strategy.
3.0 Establish a Self-Sustaining Fund for Road Maintenance
3.1 Recommend to the Steering Committee measures to Completed. increase direct and indirect road user revenues and simplify disbursement.
3.2 Formally establish a self-sustaining fund for road Mechanism agreed by maintenance in MOWT/DOR. NPC/MOF and now awaiting the formal approval of Parliament.
4.0 Improve Routine Maintenance Operation In The Divisions

Ref	Policy Options/Key Measures	Status at 01/12/94
4.1	Issue as a Departmental Policy Document the Paper on	Completed. The Paper
	the Definition of On-Road Maintenance.	combined with Paper on
		Roadside Support
		Maintenance.
4.2	Assist the Department in defining and establishing an	Complete.
	improved organization structure to undertake road
	maintenance.
4.3	Assist DOR in developing and establishing an expanding	On-going. Six SMDs
	programme of functioning SMDs with support from SDC.	now established.
4.4	Review, systemize and improve the cost effectiveness of	On-going.
	routine/recurrent and roadside support maintenance
	operations in the SMDs.
4.5	Identify and agree an expansion of the SMD programme	Complete.
	for support by SDC under the RMRP.
4.6	Prepare and issue in the Department Working Papers on a	Scheduled to complete in
	Road Maintenance Strategy for the Strategic Network in	July 1996. An interim
	Nepal.	Paper to be completed by
		September 1995.
4.7	Prepare separate Road Maintenance Manuals covering	Scheduled for completion
	routine/ recurrent and roadside support maintenance	by July 1996.
	operations in the Divisions.
4.8	Develop and establish a HMIS at Division and Regional	On-going.
	level through the SMD programme to suit management
	requirements.
5.0	Improve Periodic Maintenance of the Strategic Network
5.1	Identify and initiate any additional work program	Completed.
	necessary to bring the Strategic Network into a
	maintainable condition.
5.2	Develop the capacity within DOR to plan, prioritize and	On-going.
	manage a cyclic resealing programme for bitumen roads
5.3	in the Strategic Network as part of Planned Maintenance. Between 1994-98 undertake training contracts to improve	First training contract to
	the capability of local consultants and contractors to	start early in 1995.
	design/supervise and undertake resealing works.
5.4	Identify and recommend in conjunction with the RSSDU	On-going.
	appropriate overseas training opportunities for DOR staff
	associated with the periodic maintenance programme.
6.0	Improve Bridge Maintenance on the Strategic Network
6.1	Recommend and establish an organization structure in	Completed – a Bridge
	DOR to undertake bridge maintenance.	Unit established in the
		Design Branch.
6.2	Issue a Discussion Paper on Bridge Inventory and Bridge	Completed.
	Maintenance and hold a seminar in DOR to obtain a
	consensus on the key issues.
6.3	Carry out in consultation with the Divisions inventory	To start 1995.
	and condition surveys of all bridges on the Strategic
	Network and identify maintenance and rehabilitation
	program.

Ref	Policy Options/Key Measures	Status at 01/12/94
6.4	Set-up a computer/paper based Bridge Management	On-going.
	Information System in the Bridge Unit and the Regions.
	Link with the central HMIS in the Planning Branch.
6.5	Initiate through the Regions/Divisions an annual routine	To start 1995.
	maintenance programme for bridges on the Strategic
	Network using local consultants and contractors.
6.6	Prepare a 3-year rolling programme and budget for bridge	To start 1995.
	maintenance on the Strategic Network.
6.7	Development and execute a training programme for local	On-going
	consultants and contractors on bridge maintenance works.

7.0	Improve Roadside Support Maintenance
7.1	Issue as a Departmental Policy Document a Paper on the	Completed- the Paper has
	Definition of Roadside Support Maintenance.	been combined with the
		Paper defining On- Road
		Maintenance.
7.2	Formulate and establish in DOR an organisation structure	Completed – a Geo

	to provide support to the Regions and Divisions for	Environmental Unit has
	roadside support maintenance.	been established in the
		Planning Branch.
7.3	Development sustainable bio-engineering measures to	On-going
	complement normal geotechnical measures for slope
	stability.
7.4	Introduce these measures as part of roadside support	On-going
	maintenance through the Regions and Divisions. Monitor
	and evaluate the field performance of these measures.
7.5	Provide support and training in designing and executing	Programme to be
	sustainable bio-engineering techniques to DOR staff,	introduced in 1995.
	local consultants and contractors.
8.0	Establish the Concept of National Standards
8.1	Establish a Standards Committee in MOWT/DOR.	Completed.
8.2	Introduce the concept of national standards in DOR,	On-going. Papers on
	Review and advise on suitable geometric, constructions	geometric and
	and maintenance standards for roads in the Strategic	construction standards for
	Network.	Feeder Roads issued.
8.3	Formulate and initiate a medium to long-term strategy for	On-going. Discussion
	the introduction of national standards for road	Paper on Strategy issued
	construction and maintenance.	and seminar to be held in
		March, 1995.
9.0	Improve DOR Plant Management and Utilization
9.1	Prepare detailed guidelines for improving DOR workshop	Completed.
	administration and operations through the Strengthened
	Equipment Division (SED) process.

9.2	Initiate and monitor the establishment of Butwal Heavy	On-going.
	Equipment Division as an SED on commercial lines.
9.3	Standardize workshop and plant management system in	On-going.
	DOR and rationalize the fleet to comprise appropriate and
	reliable items for use by DOR and local contractors.

Annex 3: Summary List of Strategic Roads

(in Kilometer)

Road	Classification
Region		BT	HR	ER	Total	UC	PL
	Eastern	563.37	118.26	54.10	735.73	136.00	482
	Central	758.12	66	47.00	871.12	64.50	283.1
National	Western	497.49	1	24.00	522.49	31	220
Highway	Mid-Western	339.87	182.89	113.200	635.96	98	298
	Far-Western	49	49.00	117.72	573.36	36.2	213.3
	Sub-Total	2505.49	417.15	356.02	3338.66	229.70	1496.4
	Eastern	198.67	277.99	386.47	863.13	14.00	214.00
	Central	639.28	440.89	236.91	1317.08	23.50	138.90
Feeder Road	Western	399.4	109.08	185	693.48	63.00	300.6
(Major)	Mid-Western	98.37	256.98	218.59	573.94	15.00	260
	Far-Western	25.2	154.82	221.6	401.62	20.00	199
	Sub-Total	1360.92	1239.76	1248.57	3849.25	135.50	1112.50
	Eastern	0.00	0.00	0.00	0.00	0.00	0.00
	Central	34.63	24.90	17.80	77.33	1.00	119.30
Feeder Road	Western	30.55	10.50	61.50	102.55	1.00	89.00
(Minor)	Mid-Western	0	24.00	143.00	167.00	0.00	7.00
	Far-Western	0	0.00	0.00	0.00	0.00	0.00
	Sub-Total	65.18	59.40	222.30	346.88	2.00	215.30
	Eastern	55.90	515.20	781.60	1352.70	0.00	0.00
	Central	174.80	792.24	2020.21	2987.25	0.00	0.00
District	Western	7852	177.95	1071.35	1327.82	0.00	0.00
Road	Mid-Western	6.50	256.50	557.00	820.00	0.00	11.50
	Far-Western	8.65	111.00	194.96	314.61	0.00	0.00
	Sub-Total	245.85	1852.89	4625.12	6802.38	0.00	11.50
	Eastern	145.25	154.40	159.00	458.65	0.00	0.00
	Central	578.00	394.85	266.50	1239.35	0.00	0.00
	Western	210.20	52.00	158.00	420.20	0.00	0.00
Urban Road	Mid-Western	45.63	28.60	9.77	84.00	0.00	0.00
	Far-Western	13.00	34.70	10.00	57.70	0.00	0.00
	Sub-Total	992.08	664.55	603.27	2259.90	0.00	0.00
	Eastern	13.00	68.00	45.00	126.00	20.00	15.00
	Central	34.00	133.00	46.00	213.50	21.50	50.00
	Western	0.00	43.00	10.00	53.50	10.00	8.50
Postal Road	Mid-Western	0.00	67.00	27.00	94.00	3.00	8.00
	Far-Western	6.00	68.00	20.50	94.50	25.50	7.00
	Sub-Total	53.00	379.00	148.50	581.50	80.00	88.50
	Eastern	0.00	0.00	26.00	26.00	66.00	263.00
	Central	0.00	0.00	0.00	0.00	0.00	82.00
Mid - Hill	Western	0.00	0.00	8.00	8.00	0.00	166.00
Highway	Mid-Western	0.00	0.00	30.00	30.00	20.00	117.00
	Far-western	0.00	0.00	38.00	38.00	0.00	60.00
		0.00	0.00	102.00	102.00	86.00	688.00
Sub-Total Grand Total		5301.04	4613.25	7366.28	17280.57	669.20	3612.20

Annex 4: Summary Of Rural Road Inventory 2004

		Construction Status (Km.) Total				Surface type and length (Km.)		Intervention Required and length (Km.)
S.N.	Region	Classification	Length	Completed	Under Construct	Planned	BT	Gravel	Earthen	Routine	Rehabilation	Construction
		A	2953	1934.2	782	231.3	48.7	401.7	1591.4	1385.9	485.4	573.3
1	Eastern	B	4474.1	3792.2	467.7	458.2	68.3	333.5	2788.1	1704.6	964.4	344
	Central	A	3814	3469	125.5	182.5	75.2	776.8	2533.5	2193.5	1465.7	193.4
2		B	5104.2	4755.4	1.8	330.1	53.4	1382.8	3363.6	2573.5	2128.7	115.3
	Western	A	3984.3	2734	255.6	966.3	76.7	369.8	2445.5	1352.9	1496.4	811.7
3		B	3846.9	3004.8	54.2	734	5.9	253.5	2402.1	1439.5	1626.1	445.3
	Mid -	A	1365.7	298.5	225	298.5	5	120.1	720.1	143.5	490.2	628.5
4	Western	B	2107.2	1068.7	108.2	1068.7	0	23	951.3	160.4	715.6	1016.9
	Far -	A	1898.7	723.9	245.1	880.7	24	151.5	346	174.2	322.6	189.7
5	Western	B	998.2	323.6	245	429.6	0	69	254.6	56	233.4	33
		A	14015.7	9159.6	1633.2	2559.3	229.6	1819.9	7636.5	5250	4260.3	2396.6
Total		B	16530.6	12944.7	876.9	3020.6	127.6	2061.8	9759.7	5934	5668.6	1954.5
		Grand Total	30546.3	22104.3	2510.1	5579.9	357.2	3881.7	17396.2	11184	9928.9	4351.1

Source : Planning Division, DOLODAR,

Annex 5: Routine Maintenance Norms (b/ ljZn]if0f gd{;)

Annex 6: Agreement Letter of Length Workers (n]Gyjs { /sf] sfd ;Demf} tf)

;Demf }tfsf zt{ ;'lawfx?

#= bf]>f] kIfn] sfd ug'{ kg]{ b}lgs ;do cjlw * 306f x'g]5 t/ d+l;/, k'if, df3df sfd ug'{ kg]{ b}lgs ;do cjlw & 306f x'g]5 .
\$= klxnf] kIfn] bf]>f] kIfnfO{ ;Demf}tf cg';f/ x'g cfpg] /sd dfl;s ls:tfdf dlxgf e'Qmfg ePkl5 gubLdf e'QmfgL ug]{5 . o;/L klxnf] kIfn] o; sfdsf] nflu bf]>f] kIfnfO{ sjf]n u/fp+bf sjf]n ul/Psf] jflif{s /sdaf6 x'g cfpg] b}lgs /sd ;Demf}tf ldltdf k|rlnt ;DalGwt lhNnfsf] b}lgs Hofnfbf/Lsf] b//]6 eGbf sd x'g] 5}g .
%= bf]>f] kIfn] b}lgs sfd ubf{ b'3{6gfk|lt ;ts{ eP/ ug'{ kg]{5 / klxnf] kIfn] bf]>f] kIfsf] sfd ul//x]sf] cj:yfdf b'3{6gf ePsf] v08df >d lgodfjnL @)%) sf] bkmf !% cg';f/ rf]6k6s nfu]df Ifltk"lt{, bkmf !^ cg';f/ c+u e+u ePdf Ifltk"lt{, / bkmf !& cg';f/ d[To' ePdf Ifltk"lt{sf] Joj:yf ug{ aLdf ug]{5 .
^= ;Demf}tf cjlwdf bf]>f] kIfnfO{ klxnf] kIfaf6 pknJw u/fOPsf] Hofs]6, x]Nd]6 -cfjZostf cg';f/_, em08f sfo{ ;dodf bf]>f] kIfn] clgjfo{ ?kdf k|of]u ug'{ kbg]{5 . bf]>f] kIfn] cfÎgf] sfo{ ;dodf tf]lsPsf] sfo{ If]qdf pQm ;fdfgx? nuftf/ tLg k6s;Dd k|of]u gu/]sf] kfOPdf of] ;Demf}tf tf]8\g ;lsg]5 .
&= bf]>f] kIfn] klxnf] kIfsf] rn crn ;DklQsf] gf]S;fgL jf lxgfldgf u/]df ;f] sf] Ifltk"lt{ jf xfgL gf]S;fgLsf] ljuf] bf]>f] kIfn] klxnf] kIfnfO{ lbg]5 .
*= bf]>f] kIfsf] lhDdfsf] sfd c? s;}nfO{ 7]Ssfdf -;an]6_ lbg kfpg] 5}g .
(= bf]>f] kIfn] k|To]s xKtfsf] ! lbgsf ;fy} jif{ el/df yk ^ lbg b'a} kIfsf] ;xdltdf lgwf{/0f ul/Psf] lbgx?df ljbf kfpg]5 .
!)= Dfly pNn]lvt ljbf jfx]s cGo s'g} lbg bf]>f] kIf ljgf ;"rgf cg'kl:yt /x]df lghn] ;f] cjlwsf] kfl/>lds kfpg] 5}g . t/ ljz]if sf/0fjz bf]>f] kIf cg'kl:yt /xg' k/]df cfÎgf] ;§f csf]{ sfdbf/nfO{ sfddf k7fpg ;Sg]5 t/ o:tf] ;§f sfdbf/sf] pd]/ !^ jif{ eGbf dflysf] x'g'kg]{5 / o;sf] nflu ;fO6 cf]e/l;o/ jf ;'k/efOh/nfO{ ;dodfg} hfgsf/L u/fpg' kg]{5 .
!!= of] ;Demf}tfsf] Dofb ;lsg' eGbf Ps xKtf cufj} klxnf] kIfn] bf]>f] kIfnfO{ ;"rgf lbg' kg]{5 .
!@= b'a} kIfsf] ;xdltdf of] ;Demf}tf gljs/0f x'b}+ hfg ;Sg]5 .
!#= of] ;Demf}tfsf zt{x? b'j} kIfsf] ;xdltdf x]/km]/ tyf kl/jt{g ug{ ;lsg]5 .
!\$= o; ;Demf}tfdf x:tfIf/ ug'{ cufj} klxnf] kIfn] bf]>f] kIfnfO{ ;Demf}tfdf pNn]lvt sfd st{Jo nufot zt{ / ;'ljwfx?sf] af/]df :ki6 hfgsf/L u/fpg]5 .

klxnf] kIfsf] bfloTjx?

s_ klxnf] kIfn] bf]>f] kIfnfO{ b}lgs sfo{ ;Dkfbg ug{ cfjZos kg]{ cf}hf/x? pknAw u/fpg' kg]{5 . ;fy} bf]>f] kIfn] pknAw cf}hf/x?sf] ;do ;dodf ug'{kg]{ cfjZos dd{tsf] nflu cf]e/l;o/ tyf ;'k/efOh/nfO{ hfgsf/L u/fpg' kg]{5 .
v_ klxnf] kIfn] bf]>f] kIfnfO{ ;]Î6L Hofs]6, x]nd]6, em08f, 6f]kL, /a/sf] h'Qf, k~hf, /]gsf]6 pknAw u/fpg' kg]{5 .
u_ klxnf] kIfn] bf]>f] kIfsf] k|fljlws, ;fdflhs Ifdtf ljsf; tyf a[l4sf] nflu jif{sf] Ps k6s 6«]lgËsf] Joj:yf ug'{ kg]{5 .
3_ klxnf] kIfn] bf]>f] kIfnfO{ kl/rokq pknJw u/fpg' kg]{5 / sfd ug]{ ;dodf lgh bf]>f] kIfn] clgjfo{ ?kdf kl/ro kq nufpg' kg]{5 .
ª_ o; ;Demf}tfdf x:tfIf/ ug'{ cufj} klxnf] kIfn] bf]>f] kIfnfO{ ;Demf}tfdf pNn]lvt sfd st{Jo nufot zt{ / ;'ljwfx?sf] af/]df :ki6 hfgsf/L u/fpg' kg]{5 .
r_ klxnf] kIfn] bf]>f] kIfnfO{ sfdsf] lznlznfdf x'g] ;fdfGo rf]6k6ssf] pkrf/sf] nflu k|fylds pkrf/sf] ;fdfg cfjZostf cg';f/ pknAw u/fpg' kg]{5 .
5_ lgDg cj:yfdf klxnf] kIfn] bf]>f] kIf;+u tTsfn ;Demf}tf tf]8\g ;Sg]5M
c_ bf]>f] kIf ljgf k"j{ ;"rgf % lbg;Dd nuftf/ ;fO6df cg'kl:yt ePdf .
- cf_ bf]>f] kIf zfl//Ls ?kdf c:j:y eO{ jf cGo s'g} sf/0fn] sfd ug{ c;dy{ ePdf .
- O_ bf]>f] kIfn] sfo{If]qdf sfo{ ;dodf nfu' kbfy{ ;]jg u/]df jf u/]sf] kfO{Pdf .
- O{_ bf]>f] kIf rf]/L rsf/L nufot kmf}hbf/L cleof]udf bf]ifL k|dfl0ft ePdf .
- p_ bf]>f] kIfsf] # k6s;Dd sfd ;Gtf]ifhgs gb]lvPdf .
- pm_ bf]>f] kIfn] k|rlnt sfg"gdf Joj:yf ePsf cfr/0f ;DjlGw s'/fx?sf] kfngf gu/]df .

bf]>f] kIfn] ug'{kg]{ sfd st{Jox?

s_ ;8s ;tx ;kmf ug]{M ;8s ;txdf hDdf x'g] emf/kft, uf]j/ / cGo lsl;dsf 9+'uf d'9f lgoldt ?kdf x6fO{ ;kmf ug]{ vfN8f v'N8Ldf 9'+uf df6f] k'/L ;tx ldnfpg] / aiff{t\df hDdf x'g] kfgLnfO{ tsf{pg] .
v_ af]6 la?jf tyf emf/kft sf6\g]M ;8ssf] b'j} tkm{sf] le/fnf];Dd / cTofjZosLo 7fp"x?df sfof{non] tf]s] cg';f/sf] If]q leq cAojl:yt ?kdf x's]{sf] emf/kft sf6\g] tyf emf8L ;kmf u/]/ tf]lsPsf] :yfgdf kmfNg] .
u_ ;8s lsgf/fsf gfnL ;kmf ugM gfnL hDdf ePsf ]{ ] df6f] emf/kftsf] ;fy} cGo kmf]x/x? lgoldt ?kdf ;kmf u/]/ tf]lsPsf] :yfgdf kmfNg] . 7'nf] kl/df0fdf hDdf ePsf] ;8s lsgf/fsf] 9'+uf df6f]nfO{ d]lzg k|of]u u/L kmfNbf gfnLdf cjz]if /xg] 9'+uf df6f] ;d]t tf]lsPsf] :yfgdf kmfNg] .
3_ k'n];fsf] ;/ ;kmfO{ ugM k ]{ 'n];fsf] d'v tyf leqL efudf df6f], emf/kft nufotsf laleGg lsl;dsf hDdf x'g] kmf]x/ lgoldt ?kdf ;kmf u/L tf]lsPsf :yfgdf kmfNg] .
ª_ gfnLsf] l/;]lk+u ug]{M sRrL gfnL sfl6g] / k'l/g] x'+bf df6f] vgL/k'/L oyf]lrt cfsf/df Nofpg] .
r_ ;f]N8/ dd{t ug]{M ;f]N8/df ePsf] vfN8f v'N8L / s6fgnfO{ k'/L ;tx ldnfpg], hDdf ePsf] kmf]x/ cf]e/l;o/ jf ;'k/efOh/åf/f tf]lsPsf] :yfgdf kmfNg], emf/kft tyf af]6 la?jfnfO{ sf+6 5f6 u/L ;kmf ug]{, ;8ssf] dflyNnf] / tNnf] e]u tyf ;8ssf] b'a} kl§sf] :nf]kdf k/]sf rL/f tyf vfN8f]x? 9'+uf df6f]n] k'/L :nf]k ldnfpg] .
5_ ;fgf ltgf klx/f] ;kmf ug]{M ;8s ;tx tyf lsgf/fsf gfnLdf cfPsf] ;fgf] ltgf] -k|lt lbg cGbfhL @)–@% 7]nfuf8L;Ddsf]_ klx/f]nfO{ ;kmf u/]/ tf]lsPsf] :yfgdf kmfNg] .
h_ /f]8 kmlg{r/ ;kmf ug]{M 6«flkms lrGx, ufO{8 kf]i6 ls=ld= kf]i6 / ;8s dfls{Ëdf hDdf ePsf] w'nf] d}nf] cfbL ;kmf ug]{, emf8L tyf emf/kft x6fO{ ;ª\s]6 lrGx b'?:t / k9\g ;lsg] u/L /fVg], 9Ns]sf] ;fO{gaf8{, kf]i6 l;wf ug]{ / v's'nf] ;kf]6{ j/Lk/L KoflsË ug]{ .
em_ cltqmd0fsf/L sfo{ /f]Sg]M ;8s l;dfleq ca/f]w x'g] u/L s'g} ;fdfu|L /fVg glbg], ;8s l;df If]q leq nufO{Psf af]6 la?jfx? kz'nfO{ rg{ glbg] tyf 3f"; bfp/f sf6\g glbg] nufotsf s'g}klg cltqmd0fsf/L sfo{x? x'g jf ug{ glbg] sfo{df ;8s ;'k/efO{h/nfO{ ;xof]u ug]{ .
`_ cfsl:ds ;8s jfwf, b'3{6gf tyf cGo cfjZos 36gfsf] hfgsf/L ;'k/efOh/nfO{ t'?Gt} u/fpg] .
6_ ;8s l5d]sL;+u ;'dw'/ ;DjGw sfod ul/ ;8s dd{t ;DjlGw hgr]tgf hufpg] sfo{ ug]{ .
7_ cGo sfoM dfly pNn { ]lvt sfdx? afx]s ;8s ;'k/efOh/n] nfP cXfPsf lgoldt ;8s ;Def/;+u ;DalGwt sfdx? ug]{ .

		Annex 7: Norms for Recurrent Maintenance of Paved Highways and Feeder Roads
		Per year per kilometer Recurrent Maintenance Work
S. N.	Road Element	Recurrent Work Description		Norms
1.	Black top Surface	Pot hole/Patch/Edge Repair
		Asphalt Concrete Surface	0% - 0.2%	of paved surface area
		Surface Dressing/Premix	0% - 0.75%	of paved surface area
		Penetration Macadam	0% - 0.30%	of paved surface area
		Crack Sealing
		Asphalt Concrete Surface	0% - 0.3%	of paved surface area
		Surface Dressing/Premix	0% - 0.2%	of paved surface area
		Penetration Macadam	0% - 0.1%	of paved surface area
2.	Shoulder	Reshaping Levelling and
		compacting of GR shoulder#
		Single Lane	0% - 0.5%	of GR shoulder area
		Double Lane	0% - 0.2%	of GR shoulder area
		Seating of prime cost SBST or BT	0% - 0.15%	of sealed shoulder area
		macadam shoulder#
3.	Access Road	Gravel Access Road Pot hole	0% - 0.40%	of GR Access road area
		Repair
		BT Access Road Pot hole Repair	0% - 030%	of BT Access road area
4.	Culverts	Damaged
		Headwall/Wingwall/Catchpit/Abut
		ment and Based minor Repair	0 – 0.1	3 m per culvert
		(masonry Work)
		Damaged Checkdam and Scour
		protection Work minor Repair
		(Masonry Work)
5.a	Gabion Wall	Damaged Dry/Gabion/Masonry wall minor	0 – 1	m3 per 1000m length
5.b	Masonry Wall	Repair (Masonry/Gabion Work)	0 – 0.5	m3 per 1000m length
6.a	Earthen Drain	Resnaping (Earth Work)	0 – 5	m3 per 1000m length
6.b	Masonry Drain	Damaged Masonry work and Water	0 – 2	m3 per 1000m length
		proofing base work Repair
		(Masonry/Work)
6.c	Concrete Cover	Replace Concrete Cover	0 – 0.25	m3 per 1000m length
	Drain
7.a	Embankment	Filling Rain Cuts	0 – 2%	of embankment area
		Turfing	0 – 1%	of embankment area
8.	Cause Way	Damaged slab/bartgs repair
9.	Bridge	Damaged Hand Rail
		Repair/Replace
10.a	Road Sign
10.b	Deliniators
10.c	Masonry Parapet
10.d	Concrete Parapet	Repair/Replace/Paint		Add 20% of the total
10.e	Drum Parapet	damaged/stolen/faded road furniture		Cost of above items.
10.f	Guard rails
10.g	Gabion crash
	barrier
10.h	Km post
10.i	CL/Edge line	Paint wornout road marking
	painting

Note: For non existing road element corresponding quantity should be excluded.

^# According to the shoulder type one out of these two quantities should be included.

Annex 8: Periodic Maintenance Requirement

Region	Road	Annex 8: Periodic Maintenance Requirement Link or Section Name	Length	Estimate of	Total	Traffic	Road	Strategic	Ranking
	Class		km	cost NRs	Estimate	Index (TG)	Condition	Importance	Index =
				per	of cost	from Table	Index (RC)	Index (SI) from	TG+RC+SI
				kilometre	NRs	3	from Table 4	Table 5
Western	FR	Bardaghat - Pratappur	4	436520	1.75	0.5	0.3	0.3	1.10
Far
Western	NH	Atariya - Faltunde	53.63	513000	27.51	0.5	0.3	0.6	1.40
Far			11.38	520000	5.92	0.5	0.3	0.6	1.40
Western	NH	Faltunde - Budar
Far			22.08	520000	11.48	0.5	0.3	0.6	1.40
Western	NH	Budar - Gairha
Far			29.74	520000	15.46	0.5	0.3	0.6	1.40
Western	NH	Gairha - Syaule
Western	FR	Lumbini - Kothi brg	2.965	523145	1.55	0.5	0.3	0.3	1.10
Western	FR	Pokhara, Prithivi Chowk - Bindebasini	0.96	537372	0.52	0.9	1	0.6	2.50
Western	FR	Pokhara - Sarangkot	4.8	556624	2.67	0.9	1	0.3	2.20
Western	DR	Tal chowk - Begnas Tal	3.5	556624	1.95	0.5	1	0.3	1.80
Western	FR	Sunwal - Parasi	4	644521	2.58	0.5	0.3	0.3	1.10
Central	FR	Bhaktapur - Army Camp	4.4	650000	2.86	0.5	0.3	0.6	1.40
Central	FR	Army Camp - Nagakot	18.6	650000	12.09	0.5	0.3	0.6	1.40
Central	FR	Bhaise (TRP) - Bhimphedi	12	666617	7.99	0.15	0.02	0.3	0.47
Eastern	NH	Base Camp - Bhedetar	12.32	700000	8.62	0.5	1	0.6	2.10
Eastern	FR	Damak(Padajogi) - Gauradaha	6	700000	4.20	0.5	1	0.3	1.80
Eastern	??	Birtamod-Shanischare-Budhabare	12	700000	8.40	0.5	1	0.3	1.80
Central	??	Anptari-Devghat	4.5	700000	3.15	0.15	1	0	1.15
Mid			11.75	703077	8.26	0.5	0.3	0.6	1.40
Western	NH	Harre - Chhinchu
Mid			25.4	703077	17.86	0.5	0.3	0.6	1.40
Western	NH	Chhinchu - Newari Khola
Mid			1.99	750000	1.49	0.5	1	0.6	2.10
Western	NH	Tulsipur Munc.Bdr Birendra Chowk
Western	NH	Pokhara Munc. Bdr Prithvi Chowk	4.42	765754	3.38	0.9	1	0.6	2.50

Western	NH	Butwal mu_b~Milancjowk	1.59	788557	1.25	0.9	1	0.6	2.50
Western	NH	Sidar_nagar mub - Butwal mu	2.61	788557	2.06	0.9	1	0.6	2.50
Eastern	NH	Cement Factory - Gaighat	7.24	800000	5.79	0.5	1	0.6	2.10
Western	FR	Anbukhaireni - Marsyangdi River	0.85	800000	0.68	0.5	1	0.3	1.80
Central	FR	Charikot-Tamakoshi(Jiri rd jn	18.2	800000	14.56	0.15	1	0.3	1.45
Central	FR	Nigaledanda - Charikot	25.45	800000	20.36	0.15	1	0.3	1.45
Central	FR	Tamakosi - Jiri	38.03	800000	30.42	0.15	1	0.3	1.45
Western	FR	District Border - Besisahar	19.17	800000	15.34	0.5	0.3	0.3	1.10
Western	FR	Marsyangdi River - Gorkha	23.84	800000	19.07	0.5	0.3	0.3	1.10
Western	NH	Sukoura - Butwal (Milan Ck)	3.36	820794	2.76	0.9	0.3	0.6	1.80
Western	NH	Baderwa-Sunwal	4.86	821025	3.99	0.9	0.3	0.6	1.80
Western	NH	Bardaghat - Baderwa	12.6	823108	10.37	0.9	0.3	0.6	1.80
Western	NH	Butwal - Butwal(Mahendra Ck)	1.4	824267	1.15	0.9	0.3	0.6	1.80
Eastern	FR	Fikkal - Pashupatinagar	10.75	825000	8.87	0.5	0.3	0.6	1.40
Eastern	NH	Chihandanda - Fikkal	11.55	825000	9.53	0.5	0.3	0.6	1.40
Eastern	NH	Fikkal - MaiKhola	24.59	825000	20.29	0.5	0.3	0.6	1.40
Central	NH	Bhaise - Lamidanda	18.11	833271	15.09	0.5	1	0.6	2.10
Western	NH	Sidar_nagar mub - Butwal mu	1.23	842752	1.04	0.9	1	0.6	2.50
Western	NH	Sidar_nagar mub - Butwal mu	7.919	842752	6.67	0.9	1	0.6	2.50
Central	NH	Palung - Tishing	4.78	874935	4.18	0.5	0.3	0.6	1.40
Central	FR	Thulo Kh - Kakani	7.68	875000	6.72	0.5	1	0.6	2.10
Central	FR	Kakani - Tadi Kh	14.6	875000	12.78	0.5	1	0.6	2.10
Central	FR	Batar - Gerkha Kh	4.71	875000	4.12	0.15	1	0.3	1.45
Central	UR	Nuwakot Durbar Road	6	875000	5.25	0.15	0.3	0.6	1.05
Central	FR	Tadi Kh - Batar	7.52	875000	6.58	0.15	0.3	0.6	1.05
Central	UR	Kakani Link Road	4.5	875000	3.94	0.15	0.3	0.3	0.75
Western	FR	Bartung - Batase Danda	4.61	890000	4.10	0.5	1	0.3	1.80
Western	NH	Chidiya Kh - Banstari	5.5	890000	4.90	0.9	0.3	0.3	1.50
Western	NH	Chidiya Kh - Banstari	7.26	890000	6.46	0.9	0.3	0.3	1.50
Western	NH	Banstari - Bartung	5.29	890000	4.71	0.5	0.3	0.3	1.10
Western	NH	Chidiya Kh - Banstari	5.63	890000	5.01	0.5	0.3	0.3	1.10
Western	NH	Mahendra park - Chidiya Kh	0.14	890778	0.12	0.9	1	0.6	2.50
Western	NH	Muse Khola - Byas Munc. Border	5.32	900000	4.79	0.5	0.3	0.6	1.40
Western	NH	Mugling Bridge - Anbukhaireni	7.38	900000	6.64	0.5	0.3	0.6	1.40

Western	NH	Kumle-Kotre	9.22	900000	8.30	0.5	0.3	0.6	1.40
Western	NH	Dumre - Muse Khola	14.11	900000	12.70	0.5	0.3	0.6	1.40
Western	NH	Byas Munc. Border - Kumle	18.57	900000	16.71	0.5	0.3	0.6	1.40
Central	NH	Tishing - Sopyang	17.8	937430	16.69	0.5	1	0.6	2.10
Central	NH	Simbhanjyang - Palung	14.84	937431	13.91	0.5	1	0.6	2.10
Western	NH	Syangja - Kubinde	14.61	950000	13.88	0.5	1	0.3	1.80
Eastern	NH	Patle Khola - Hile	5.81	950000	5.52	0.5	0.3	0.6	1.40
Eastern	NH	Mulghat - Patle Khola	11.58	950000	11.00	0.5	0.3	0.6	1.40
Eastern	NH	Patle Khola - Hile	12.5	950000	11.88	0.5	0.3	0.6	1.40
Eastern	NH	Bhendetar - Mulghat	18.38	950000	17.46	0.5	0.3	0.6	1.40
Central	NH	Dolalghat - Lamosangu	19.24	950000	18.28	0.5	0.02	0.6	1.12
Central	FR	Bharatpur Bypass	1.49	1000000	1.49	0.9	1	0.6	2.50
Central	NH	Narayanghat - Anptari	2.45	1000000	2.45	0.9	1	0.6	2.50
Central	FR	Balaju Bypass - Nagarjun	1.59	1000000	1.59	1	0.3	0.9	2.20
Central	FR	Balkhu - Chovar	4.28	1000000	4.28	1	0.3	0.9	2.20
Central	FR	Chovar - Dakchhinkali	12.11	1000000	12.11	1	0.3	0.9	2.20
Eastern	NH	Jhapa Chowk - Bhaire Chowk	4.17	1000000	4.17	0.5	1	0.3	1.80
Eastern	NH	Bhaire Chowk - Charali	10.37	1000000	10.37	0.5	1	0.3	1.80
Central	NH	Anptari - Ramnagar	3.55	1000000	3.55	0.9	0.3	0.6	1.80
Eastern	NH	Duhabi - Itahari	11.61	1000000	11.61	0.9	0.3	0.6	1.80
Eastern	NH	Rani - Kanchanbari	13.37	1000000	13.37	0.9	0.3	0.6	1.80
Central	NH	Jn. Trisuli bridge - Mawa Khola	20	1000000	20.00	0.9	0.3	0.6	1.80
Eastern	NH	Mawa- Belbari	23.4	1000000	23.40	0.9	0.02	0.6	1.52
Central	FR	Jorpati - Sundarijal	7.13	1000000	7.13	0.3	0.2	0.5	1.00
Western	NH	Belhiya - Sidarthanagar mu_b	0.35	1028953	0.36	0.9	1	0.6	2.50
Western	NH	Belhiya - Sidarthanagar mu_b	0.44	1028953	0.45	0.9	1	0.6	2.50
Western	NH	Belhiya - Sidarthanagar mu_b	1.69	1028953	1.74	0.9	1	0.6	2.50
Western	NH	Belhiya - Sidarthanagar mu_b	2.35	1028953	2.42	0.9	1	0.6	2.50
Central	DR	Ring Road - Nakhu Bridge	0.35	1202062	0.42	0.9	1	0.6	2.50
Central	FR	Toukhel - Godawari Marble	2.88	1202062	3.46	0.9	1	0.6	2.50
Central	DR	Imadol-Krishna mandir -Tikathali	0.2	1202062	0.24	0.15	1	0	1.15
Central	DR	Gwarko - Lubhu	5.22	1202062	6.27	0.5	0.3	0.3	1.10
Central	DR	Lubhu - Lamatar	2.78	1202062	3.34	0.5	0.3	0	0.80
Central	NH	Bhittamod - Jaleswor Munc. Border	5.61	1250000	7.01	0.9	1	0.6	2.50

Central	NH	Dudhmati - Janakpur Munc. Border	6.03	1250000	7.54	0.9	1	0.6	2.50
Central	NH	Janakpur Munc. Bdr Mahendranagar	11.1	1250000	13.88	0.9	1	0.6	2.50
Central	NH	Jaleswor Munc.Border - Dudhmati	12.2	1250000	15.25	0.9	0.3	0.6	1.80
Mid Western	NH	Municipality Border - Kohalpur	15.02	1488054	22.35	0.5	1	0.6	2.10
Mid Western	NH	Dhamboji - Municipality Border	1.28	1488054	1.90	0.5	1	0.6	2.10
Central	NH	Pipalamod - Nagdhunga	1.89	1500000	2.84	1	0.6	0.9	2.50
Central	NH	Ring Road (Kalanki) - Tripureswor	3.46	1500000	5.19	0.2	0.6	0.9	1.70
Western	FR	Jitpur -Taulihawa Mu-b	8.72	1500000	13.08	0.5	0.3	0.3	1.10
Western	FR	Chanauta -Bahadurgunj	12.02	1500000	18.03	0.5	0.3	0.3	1.10
Central	FR	Karmanasha Bridge - Harisiddhi	2	1502578	3.01	0.9	1	0.6	2.50
Central	DR	Nakhu Bridge - Bungamati	4.43	1502578	6.66	0.9	1	0.3	2.20
Central	UR	Pulchowk -Ekantkuna	1.66	1502578	2.49	0.9	0.3	0.6	1.80
Central	FR	Satdobato - Sunakothi	2.42	1502578	3.64	0.9	0.3	0.6	1.80
Central	DR	Satdobato - GEMS	2	1502578	3.01	0.15	0.3	0.3	0.75
Central	NH	Chure - Ratemate	4.39	1767198	7.76	0.9	0.3	0.6	1.80
Central	NH	Ratemate - Hetauda	5.34	1767198	9.44	0.9	0.3	0.6	1.80
Central	NH	Jitpur - Pathalaiya	6.89	1884061	12.98	0.9	0.3	0.6	1.80
Central	NH	Gandak canal - Jitpur	12.52	1980972	24.80	0.9	0.3	0.6	1.80
Central	UR	Kathmandu Ring Road	3	2000000	6.00	1	0.6	0.9	2.50
Central	UR	Kathmandu Ring Road	12	2000000	24.00	1	0.6	0.9	2.50
Central	NH	Sirsiya bdr - Jn. Old alignment	1.33	2137739	2.84	0.9	0.3	0.6	1.80
Central	NH	Jn. Old alignment - Gandak canal	7.3	2223249	16.23	0.9	0.3	0.6	1.80
		Total	1006		929.76

Annex 9:Evaluation of Service Level for A One-Km Test Section

Identification of Test Section: from km ................ to km ............... ASPECT 1 2 3 4 5 Number of noncomplying segments Weight Factor Percentage of Non-Compliance Insert x if a segment does not comply (1) (2) (3) = (1) * (2) [A]PavementShoulder/Roadside • Patch work 10 • Cracks/rutting/ravelling 6 • Pavement edge break 6 • Cleanliness 3 • Shoulder 4 • Embankment slopes 4 • Vegetation control 3 3 • Obstruction on road 2 Sub Total [A} 38 [B]Bridge and Structures Bridge maintenance 7 Retaining and protection wall 7 Waterway maintenance 6 Sub Total [B] 20 [C]Drainage system Longtudinal drains 4 Culverts and cause ways 10 Sub Total [C] 14 [D]Signaling and Road Safety Sign maintenance 6 Kilometer/delineators/guideposts / Confidence Blocks 4 Road Marking block maintenance 8 6 Sub Total [D] 18 [E] Provision of Maintenance Services Sub Total [E] 10

Percentage of non-compliance of the one-km Test Section:	(Sum of the above)
(if value > 100, insert 100)
Coefficient of compliance of the one-km section:
(= 100 minus percentage of non-compliance) / 100

Total A+B+C+D 100

Source: RMDP, DOR

| | Annex 10: Service Quality Criteria for Pavement, Shoulders and Road Side within RoW | |--|-------------------------------------------------------------------------------------| | | |

| Annex 10: Service Quality Criteria for Pavement, Shoulders and Road Side within RoW | | | | | | | | |------------------------------------------------------------------------------------------------------------------|--------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------|--------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------|-------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------|--|--|--|--| | Item | Service quality | Measurement/Detection | Time allowed for
repairs or
Tolerance
permitted | | | | | | Pavement width | Road width after
completing periodic
maintenance works to be
maintained | Manual measurement using a
metallic measuring tapes. | No tolerance
allowed. | | | | | | Potholes
including
pavement
failures
requiring dig
out repair | No potholes allowed. | Visual inspection. | Potholes which are a
hazard to traffic as
soon as is feasible.
Potholes must be
repaired within three
(3) days after their
detection. | | | | | | Patching | Patches
(i) shall be square or
rectangular,
(ii) shall be level with
surrounding pavement,
(iii) shall be made using
materials similar to those
used for the surrounding
pavement, and
(iv) shall not have cracks
wider than three (3) mm. | ƒ
Visual inspection (for
detection of shape and
material used
ƒ
Straight-edge (to check if
patch is level with
surrounding pavement
ƒ
Small transparent ruler (for
cracks) | Non-complying
patches must be
repaired within two
weeks after their
detection. | | | | | | Cracking in
pavement
(a crack is a
linear opening in
pavement with a
width of more
than 3 mm.) | i) There shall be no cracks
more than 3 mm wide.
ii) For any 50m section of
the pavement, the cracked
area shall not be more than
ten (10) percent of the
pavement surface. | Crack widths measured with
small transparent ruler.
For isolated cracks, the "cracked
area" includes 0.5 0m on each
side of the crack, multiplied by
the length of the crack plus 0.50
m at each end.
For multiple cracks and cracks
crossing each other, the "cracked
area" is equivalent to a square
area, parallel to the lanes, which
fully encloses the cracks, and
where the closest crack is at least
0.25 m away from the sides of
the square. | Cracks more than 3
mm wide must be
sealed within seven
(7) days after their
detection.
Cracked area
exceeding 10% of a
50 m length shall be
sealed withing four
(4) weeks. | | | | |

Cleanliness of the pavement surface and Shoulders.	The road surface must always be clean and free of soil, debris, trash and other objects.	Visual inspection	Dirt, debris and obstacles must be removed: ƒ within 2 (two) hours or earlier if practically feasible if they pose a danger to traffic safety ƒ within 2 days if they do not pose any danger to traffic safety.
Rutting	There shall be no ruts deeper than 15 mm. Rutting of more than ten (10) mm shall not be present in more than 5 percent of the road sections in the contract	Measured with a 3 m long straightedge placed perpendicularly across lane; rut depth measured as space between straightedge and lowest point of rut, using a small ruler with scale in mm	Rutting above threshold value must be eliminated within two weeks.
Raveling	There shall be no raveled areas of depth greater than or equal to 20 mm.	Visual inspection.	Raveled areas must be sealed within four weeks after their detection.
Pavement Edge failure	There shall be no edge failure (uplift, settlement or edge break) ≥ 10mm and 1 m length.	Visual inspection	Repairs must be completed within seven (7) days after the detection of the defect.
Unsealed shoulder	Difference in height at edge of pavement shall not be more than 30 mm. No potholes >100 mm deep	Measured with ruler, with scale in mm, from straightedge held across pothole.	As soon as is practically feasible when hazardous to vehicles. Repairs must be completed within two weeks after the detection of the defect.
Embankment slopes	Without deformation or erosion.	Visual inspection	Repairs must be completed within two weeks after the detection of the
Slope failures in cuts	Material falling off slopes must be removed.	Visual inspection for slope material on shoulders or pavement	Fallen slope material must be removed Quantities below 50 3 m : ƒ from pavement within 4 hours after detection ƒ from shoulders within 48 hours after detection. Between 50 m3 and 500 m3

Trees within right-of-way	Trees within right-of-way must be preserved and protected.	Visual inspection.	ƒ from pavement within 24 hours after detection ƒ from shoulders within 96 hours after detection Note: For landslides classified as "emergency" different rules apply. No tolerance permitted.
Vegetation Control	Maintain sight distance Maintain 5.0m vertical clearance No growth on road pavement or on structures, Vegetation height on shoulders to be ≤ 20 cm No obstruction to drainage	Visual inspection	No tolerance permitted.
Right-of-way (outside pavement and shoulders).	Height of vegetation (except trees) must be: ƒ less than 20 cm on slopes towards the road ƒ less than 1.0 m otherwise ƒ must not disturb drainage	Visual inspection. Measurement with ruler.	Vegetation exceeding the threshold height must be cut back within seven (7) days after detection.
	Trash, debris, etc.	Visual inspection.	Trash, debris and other objects must be removed within seven (7) days after detection.
Obstruction on pavement	All obstructions to be removed	Visual inspection	Obstruction causing blockage between 8am and 6pm within 4 hours Between 6pm and 8 am within six hours. Obstruction not causing blockage within three days.

Annex 11: Terms of Reference:

Study Topic: Sustainable Approach to Transport Infrastructure Maintenance Practices for Effective Service Delivery

This assignment is equivalent to effective one person-month. The consultant should establish adequate interactions with key informants, stakeholders and government agencies while conducting the study.

Task Details:

1. Review current and past transport infrastructure maintenance practices.
2. Review the role of Roads Board in financing road maintenance activities [Strategic Road Network (SRN) and Local Road Network (LRN)].
3. Examine the current backlog in road maintenance (SRN & LRN) and its implication in terms of social and economic cost.
4. Examine the role and scope of involvement of direct beneficiaries in road maintenance especially in urban roads.
5. Identify process for an effective handover of LRN including urban roads to Local Authorities.
6. Identify successful practices in operation within Nepal and prospects for replication.
7. Identify prospects for public-private partnership clearly stating the role of the government and private parties.
8. Suggest improvements.
9. Review the successful/shortfalls at planned maintenance introduced through Strengthened Maintenance Programme (SMD) and make comparison with other initiative taken by DoR.
10. Suggest a policy-action matrix containing (a) constraints (policy, legal, institutional, administrative, and others if applicable); (b) recommended policy improvements; (c) activities; (d) indicators of achievement; (e) responsible agencies; and (f) timeframe (immediate, intermediate, and long-term)
11. The paper should include an executive summary not exceeding five pages.
12. The consultant is requested to provide a short article, in English or Nepali, related to the above topic, to be published in a national daily for information dissemination.
13. Submit draft report (electronic and hard copy) to the EPN Focal Unit within 30 days from the date of assignment.
14. Present the draft at the Advisory Committee meeting (to be scheduled by EPN Focal Unit).
15. Present revised draft (incorporating comments from the Advisory Committee and external reviewer) at the workshop organized by the EPN Focal Unit.
16. Present final report (incorporating comments from the Workshop) at the Advisory Committee meeting for final validation. Submit final report to EPN Focal Unit (electronic and hard copy).

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status: converted

ECONOMIC POLICY NETW ORK

SUSTAINABLE APPROACH TO ROAD TRANSPORT MAINTENANCE PRACTICES FOR EFFECTIVE SERVICE DELIVERY

Prepared for: Economic Policy Network Government of Nepal/ Ministry of Finance Singha Durbar, Kathmandu, Nepal

Foreword

Abbreviations

Executive Summary

Maintenance Concept and Existing Policy

Road Status Of Nepal

Review of Past and Present Practices Of Road Maintenance

Planned Maintenance In DOR

Performance-Based Management And Maintenance Contracts Of Roads

Roads Board Nepal In Financing Road Maintenance

Backlog In Road Maintenance & Its Implication

Rural and Urban Road Maintenance

Recommendations

General

Strategic Roads

Rural Roads

Urban Roads

Policy Action Matrix

Chapter I

Maintenance Concept and Existing Policy

1.1 Background

A stitch in time saves nine

1.2 Factors Affecting Road Deterioration

Deterioration Characteristics of Paved Roads

Deterioration Characteristics of Unpaved Roads

1.3 Existing National Policy

Chapter 5: Policy

Chapter 6: Working Policy

Chapter 7: Sector wise transport policy

1.4 Policy on Maintenance of Strategic Road Network

1.5 Policy on Maintenance of Local Road Network

1.6 Issues

Chapter II

Road Network Status of Nepal

2.1 Strategic Road Network

2.2 Rural Road Network:

2.3 Urban Road Network:

2.4 Total Road Network:

2.5 Bridge Status

2.6 Road Requirement Issue

Chapter III

Review of Past and Present Practices of Road Maintenance

3.1 Strategic Road Network

3.2 Rural Road Network

3.3 Maintenance Scenario in other Countries

Chapter IV

Planned Maintenance in Dor

3.1 Background

3.2 Routine Maintenance

3.3 Recurrent Maintenance

3.4 Periodic Maintenance

3.5 Bridge Maintenance

3.6 Budget Trend for Maintenance

3.7 Length Workers for Routine Maintenance

3.8 Successful Practices In Operation Within Nepal & Prospects For Replication

Chapter V

Performance-Based Maintenance Contracts of Roads

5.1 Basic Concept of PBMC

5.2 Management Modality

5.3 Scope of Works and Responsibility

5.4 Road User Satisfaction Level Expected to Improve

5.5 Monitoring, Evaluation and Payment

5.6 PBMC Experience and Issues

Chapter VI

Roads Board Nepal in Financing Road Maintenance

6.1 Roads Board Concept:

6.2 Roads Board in Nepal

6.3 RBN Planning and Fund Disbursement Schedule

6.4 Estimated Fund Requirement

6.5 Projected Revenue

6.6 Issues of RBN

Chapter VII

Backlog in Road Maintenance & its Implication

7.1 Backlog in Maintenance and It's Implication

7.2 Current Backlog in Road Maintenance

7.3 Issues in Backlog Maintenance

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Annex 5: Routine Maintenance Norms (b/ ljZn]if0f gd{;)