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CHAPTER 11 ESTABLISHMENT OF

INSTITUTIONAL FRAMEWORK

11. 1 Institutional framework - Road network

There are multiple agencies of the Government that are directly involved and accountable to ensure that the road network as part of the overall transport system is maintained to required standards in the city The agencies are Bangalore Mahanagara Palike (BMP) who is directly responsible as the implementing agency as well as the entity vested with the construction and maintenance of the roads in the city. The other important agene is Bangalore Metropolitan Transport Corporation (BMTC) Sate owned Transport Corporation. The study of the current situation however reveals that the coordination b tween BMP and BMTC could be impro ed to enhance the utilization of the road network and also evolve common agreed programs to decongest the traffic and build capacity. The third agenc ha ing a stake in the regulation of traffic on the roads is the traffic police. The focus of the traffic police is to maintain free movement of vehicles and regulate the parking of vehicles to avoid congestion. Due to rapid explosion of number of vehicle in the city the traffic police have resorted to making number of arterial roads within the ci as one-wa thus increasing the travel tim and distance for the road usersincludingthe Banga.lore Metropolitan Transport orporarion (BMTC) buses.

The fourth agency involved in the issue is Bangalore Development Authority (BOA) who constructs and maintains some of the tlyovers (grade separators), ring roads and specified roads within the cit . There is no clarity io allocation of construction projects between BOA and BMP in respect of flyovers and roads. BOA also allots and plans residential and commercial sites in and around Bangalore. When sites are allotted without considering the laying of internal, service and main roads vehicl owners have little choice but to resort to make

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shift arrangements in forming lanes which after fev years become the basis for laying roads. These lanes which get formedwithout soil study and other criteria pose major problems when take up for construction of proper roads.

The government is examining the feasibility of delineating the roles and responsibilities of tile stakeholders engaged in development and maintenance of the road network within Bangalore. ChanneLising financing for major projects would be improved if the clear role responsibility is defined. The responsibility for the various agencies involves are shown in Table 11-1 below.

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Table 11-1 Roles and Area of Cooperation ofvarious agencies

1 nstitntien

Primary Role Impact on Road network

Area of

coo peratio n

Severity of noncooperation/ inaction

BOA

Land Planning allotment sites,

Use Independent Coordination with BMP Medium

and functioning causes and BMTC to create the

of surpnses and hold- infrastructure ill a

construction, operation and maintenance of key roads and

ups

coordinated manner willie aUotting sites and underrating construction of £Iyo ers and roads

BIlvlP

Plruming, Development, Financing, Construction,

Operation and

Maintenance

Tlrnely execution of Medium

of projects. Educating the High citizens on proper road

use including that of foot

paths

Detennining capacity in terms volume of traffic

to

BMTC

Planning developme TIt.; operation and maintenanc e of fleet of buses to carry passengers; route planning,

.1 • ..1"1 inp'

Traffic congestions, Integrated planning and High blocking of traffic development of road

near bus shelters network, route

development and

scheduling

Traffic Police

Regulatio

n of

traffic, traffic diversions and parking regulation s

Determines the flow Participate III planning Medium

of traffic, and de elopment of road

congestions infrastructure and

accident removal coordinate with BMP mechanisms, safety and BMTC while issuing for road users regulations in respect of

traffic including special occasions

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Govt. of Policy making Bad road network, Define the role and Establish inter-
Karnataka inadequate fund responsibility of BOA institutional
allocation, unproper and BMP in respect of entity for
planning planning and planning,
development of road development,
t""IIO ....... II"P,.. ... '1'11~t'k;~ ,,:;;rII~ .... ,..;nn-
._,,,,, .. \ryVll'- ''''U.ll.J'' • Ll"41''''I.II.o"
Bangalore monitoring
and measunng
Ihe
I performance of In the absence of a coordinating agency, there are several constraints in the integrated and comprehensive planning and delivery of services (to both citizens and businesses). Interdepartmental coordination is one of the prominent issues and conflict that are becoming difficult to address or resolve even at the level of heads of the service delivery agencies. It is observed that the citizen is often concerned with the quality of service rather than, ho is delivering the service. The service delivery often suffers because more than one agenc is involved and there is no mechanism for ensuring inters agency coordination. The area to be addressed in a critical manner is 'Functional Overlaps & Co-ordination Requirements".

To realize the outcome of free flow of traffic, accident-free roads witb clean environment all the above agencies need to participate and implement plans in an integrated and coordinated manner. 111 Government of Kamataka represented by tile Urban Development Department and the Transport Department has constituted an inter-institutional committee with members drawn from the following to give shape to the proposal for coordination and effective management of the road network and transport sector initiatives:

• Commissioner, BMP - Chairman of the ornmittee

• Secretary, Urban Development, OOK

• Secretary, Trao port Department

• Managing Director BMT

• Director General, Traffic Police

• Chairman, BDA

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Another critical institutional aspect for the road projects is the need to establish a dedicated project management cell within BBA to undertake such a massive and citizen sensitive project ill a comprehensive manner.

11.2 Rationale for a Project Management Unit

There is a need for an organization which could handle joint projects among stakeholders cutting across various government entities. Such an organization should address the needs of the city - Greater Bangalore - a Techno polis, fast emerging as an intelligent city. The informal arrangement that was started a few years back in the form of BATF needs to be formalizednow by establishing a new organization that would focus on delivering citizen services by concentrating on urban infrastructure planningaod execution. A strategic plan for the city development in terms of urban infrastructure shall be developed by the proposed organization along with a clear road map with milestones to translate the strategy to actions.

To execute a project with multiplicity of stakeholders profound project management skills and inter-disciplinary approaches are essential. ln order to effectively implement, monitor and control the schemes envisaged under the road network initiative it is strongly recommended that a Project Management Unit (PMU) as an exclusive entity responsible for road projects b established. funding agencies stipulate evidence of professional management skills and best practices for sanction and disbursal of funds for such of these schemes. BOA has accepted the recommendation and it has been suggested that PMU be established as part of BOA functioning independently to carry out the road projects in accordance with JNNURM guidelines and reforms agenda agreed among the stakeholders.

It bas been observed in many infrastructure project implementation schemes that cost and time overruns could have been avoided if a separate dedicated unit or cell were vested with the authority and powers to deal with the project imp lementation cycle. There has been a signi ficant imp rovement in performance

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of dedicated units wherein policy, implementatioaand regulation are clearly isolated and delineated. It is proposed that PMU functions as an execution agency of policies framed by BDA I Government and thus focusing on deliverables in terms of performance. Weak institutional mechanism coupled with lack of application of contracting skills affect the implementation of large infrastructure schemes. Channelling right competencies required for handling such schemes is vital but found to be non-existent under bundled institutional setups created around budgetary focus for expenditure monitoring. Performance measurement in terms of timely completion and construction as per requirements and specifications, are few aspects that are not given due importance undercerrent functionin_g of these institutions.

Projects executed as part of many government schemes are susceptible to delays on account of slow decision making process and sometimes by the application of bureaucratic procedures. Focused attention and clearly defined roles among implementation agencies are seldom noticed in routine schemes funded either thr-ough budgetaryallocations or through external funding mechanisms. Systems of the government remain inflexible and unable to cope up and address the needs of the funding agencies and contractors to deal effectively with emerging situations, uncertainties and risks.

While establishing the PMU, its governance structure, its inter-play with various internal and esteraal stakeholders and its role, responsibility, powers, authority and liabilities need to be defined. More importantly the framework should highlight on the organization structure. the profile and attributes of the Offioer in-charge and outsourcing mechanisms to pool resources. The recommendation would lay the basis for the establishment and operation of the PMU as weil as its future role in respect of similar large urban infrastructure projects in Bangalore city.

The likelihood of achieving the project outcomes as per the specifications and within the time-frame planned would be greatlyenhaneed if the PMU is manda.ted to design, develop, implement and oversee the operation and

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maintenance phases. Performance orientation and achievement of measurable goals would be the hallmark of PMU and the knov ledg gained should also be

graduall transferred to its contractors, outsource partners and stakeholders.

PMU hould be designed and structured in such a way that it is independent and allowed to function as an autonomous unit and be part of BOA Performance measures of PMU shall be agreed between the designated state government agency and PMU and also in consultation with other major stakeholders like BOA. 8Mf ,Traffic Police, CMCs etc. Pedixmance ofPMU should be evaluated based on its efficiency and effectiveness parameters and evolve initiatives and projects that are economically viable and politically sustainable. PMU could have i:ts resources picked up from among various constituents of the government apart from external professional pooL An organization structure that would primarily meet: with the engineering and. enforcement aspects of the project is developed and presented here. The administrntive functions like land acquisition and arrangement of finance are to be dealt with by the interinstitutional committee recommended as part ofthe reforms agenda.

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Constructionof Grade Separator along outer Ring Road atthe Intersection of ORR and Be/lanellir .function.

CHAPTER 12FINAN.CIAL & OPERATING PLAN

12.1 Financial & ,operating Plan

Construction and maintenance of road infi:ast:ructure within city limits is the obligatory function of the local body BOA. The road projects when implemented would not generate additional revenue for BDA Thus, it is a social infrastructure project attempting to improve the transport system which is one of the backbone infiasIrudures for the city's economy, Traditionally BOA, alongwith BMP has been sharing the responsibility of revamping of roads. widening and construcnon of grade separators based on availability of funds. Thuathough a priority list of roads await reconstruction, due to lack of funds the condition of the road network in the city has become unacceptably badaffixting the normal movement of vehicles. These characteristics of the project lend itself for grants,aid and soft loans. Not withstanding the above social aspects, BDA would provide appropriate support. to the project by means of initial seed. amount and through budget provision to support the operation and maintenance of the road network once constructed. TIle portfolio. of roods that BOA would be focusing on is the peripheral roads around the city, viz Outer Rind Road & Peripheral Ring Road, in addition 1:0 development of road network in layouts being developed, and allmajor feeder roads to the peripheral roads.

Since BDA has been implementing road project's on an ongoing basis the estimation of costs and times fur the proposed projects approved by BDA would be realistic and dose to actual implementation. The operating plan takes into consideration of the implementation schedule of each of the projects.

BDA is entitled to receive a part of the development cess being collected by the Government Consideration by the Government to part release the collection under the cess would help BOA financially to fund the priority road projects.

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CHAPTER 13 IMPLEMENTATION PLAN

13. 1 General

This chapter provides a strategic framework to ensure tbat the grade separator works proposed for Bangalore city is managed in a reliable, affordable, sustainable and environmentally friendly manner, and which is most essential for success of any project.

But from the existing management practices followed by the stakeholders and also with the prevail ing site conditions, it appears that, along with the resources required to achieve the recommended targets, strategies and actions, they also need to adopt best project management practices, improvised construction and construction supervision techniques, strengthened organizational setup, major legislative changes, coordination witb other stakebolders,pubLic awareness campaigns including their participation to minimize the adverse implications on grade separator functionality and traffic management practice in the city.

ln order to achieve the overall. objectives of the project, it is very much essential to have a proper implementation program that could ensure better control over the project cost and resources mobilized etc. BDA also proposes to have a separate project implementation unit within BDA (other than members from stake holders dept), headed by a senior officer from the Engineering wing, Revenue wing, consortia of Technical consultants, Financial advisors, Project management consultants, co ordination committee members (other stake holders dept. members), PRO'S & NGO's. The Institutional framework required has already been spelt out in detail in Chapter 11.

13.2 Project Implementation

The proposed project, starting from conceptualization stage to funding stage and to execution and management stage is envisaged to be implemented in 3 stages. These are explained in brief below and in detail in later sections. It is proposed that Stage - r activities will be carried out by Design Consultants, Stage IT shall

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Construction of Grade Separator along outer Ring Road at the Intersection of ORB and 8el/andur .lanedo/t.

be large! within the purview of BOA and the Project Implementation Unit and finallx Stage - Ill activities shall be monitored by the Project Management Consultants and the same will be over seen by BOA.

Stage -1 PREPARATION OF DETAILED PROJECT REPORT

Phase 1: Consisting of Initial stage culminating with submission of Inception Report Phase 2: Detailed. Project Report Stage culminating \ ith submission of Final Detailed Project Report consisting final drawings, cost estimates, economic analysis etc.

Stage-II SUBMISSION AND APPROV AL OF PROJECT FOR FUNDlNG UNDER JNNURM SCHEME

Phase 1: Approval of Project by BDA

Phase 2: Submission to Nodal Agency (KUlDFC) for review

Phase 3: ubmissioa to Stare Steering committee and upon approval

submission to MoUD for sanctioning of funds.

Stage - III

ON TRUe. ION PHASE

Phase 1: Upon approval, Tendering tage and culminating with the signing of Contract agreement with eligible Contractor.

Phase 2: Preliminary Stage consisting of Mobilization stage design stage etc.

Phase 3: Construction Stage culminating with opening of grade separator to traffic.

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13.3 Stage I

The first stage of the project consists of mainly design and data collection related activities. The scope of services to be rendered by the design consultants has already been Listed out in Chapter 2 of tills report. The time frame envisaged for this stage is about 3 months from start date, i.e, issue of work order.

13.4 Stage II

The second broad stage IS review of the project and approval by vartous agencies involved with the project, including Stage Level Nodal Agency KUlDFC, State Level Steering Committee and later on by Central Ministry MoUD. External consultant's role will be limited to providing clarifications on Technical issues and related information as necessitated b the reviewing

agencies.

13.5 Stage III

After review and on approval of the project by JNNURM, the next stage deals with the tendering activities, appointm nt of Contractor and the actual construction \ ork. The whole stage is split up into three phases as given below:

Phase 1: Upon approval, Tend ring Stage and culminating with the signing of ontract agre-ement with eligible ontractor.

Phase 2: Preliminary Stage consisting of Mobilization stage. design stage etc.

Phase 3: Construction Stage culminating with opening of grade separator to traffic.

The various stages involved during the construction stage are outlined below:

• Preliminary Stage: including mobilization period, detailed design, shifting of uti I [ties, construction of diversion roads etc.

• Piling Works: Boring and asting piles in all soils with/ without permanent

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Construction oj Grade Separator along outer Ring Road at the Intersection of ORR and BellaJzdur .function.

steel liner routine & lateral load test oil piles, open foundation etc.

• Abutment, piers & Retaining Wall works: including Excavation, foundation, wall construction, concreting, Filter media behind abutment, backfilling Retaining wails, RE walls etc.

• Superstructure of Bridge: including Raising of Piers upto Girder soffit level. Erection of girders, casting of diaphragm, flat slabs, beams etc.

Construction of pavement & drains: along approaches, along service roads along approaches including excavation, construction of RCC drains along project road lengths as per drawing, provision of subgrade, Granular Sub Base, Wet Mix Macadam, Dense Bituminous Macadam or Bituminous Macadam, and Bituminous Concrete.

Finishing Works: including painting, road markings, fixing of road furniture, fixing ofband rails, external electrification works etc.

The whole of construction period is expected to last 8 months including monsoon. period from the date of handing over of site to the ontractor.

13.6 Implementation Program

It is estimated that the work envisaged under this project would invol e a period of8 months from date of hand over of site. The tendering stage, which will be done as per KTfP act for the execution of civil works, may take another 2 months prior to the construction stage.

It is proposed that BDA, the nodal agenc will set up a separate implementation unit (refer Chapter II) whose responsibilities would include ensuring the deployment of adequate staff: usage of quality materials, construction practices of acceptable standards and quality of works carried out, monitoring and reporting the project progress to the project monitoring agencies.

Tender specifications and construction practices are reflected in the bid document i ned b BOA for its works r lated to construction of system

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components. The contractor would also adhere to the environmental regulations in practices and keep the citizens informed of the scheduled of the project underway in a periodic manner.

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CHAPTER 14

RECOMMENDATIONS

CONCLUSION

14. 1 Conclusions

The Project was found to be economically viable in view of the potential savings in VOC, travel time and lesser accidents. Therefore the construction of two Uni-directional Flyovers at Bellandur Junction coupled with the traffic management will have the following additional benefits:

• Reduced junction delays, Vehicular Pollution

• Reduction in idle fuel consumption

• Improved Level of service at the Junction

• Substantial savings in travel time of Road users

• Reduces the number of conflicts at the circle

14.2 Recommendations.

• t is expected that the LOS of the grade separator will reduce with the

increas in traffic. To improve tile same, other junction along the radial arms of the junction needs to be coordinated in order to reduce the congestion at these junctions. Improving the LOS of these junctions will also help improve the LOS of the grade separator at a later stage.

• Maintenance ovcda need to be pro ided on the main carriageway once every ~ years to improve the functional and structural soundness 0 the pavement.

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&