International Conference on Sustainable Development of Transport System

20 -22 October 2011

DISTRICT TRANSPORT PLANNING TREND IN NEPAL

Hare Ram Shrestha 1
2
Umesh K Shrestha

ABSTRACT

Since early nineties, all the districts, having road head available, started the road
construction without proper planning and the investment priority. Most of the roads are
neither completed nor in operational properly. Therefore, it was felt necessary to have
documented district transport planning. First Road Master Plan for Dhading district was
prepared in 1993. PLRP prepared DTMPs of 4 project districts during 1995 – 1997 in
western region with systematic process. Meanwhile DoLIDAR was formed in 1997 and
Approach manual for planning (DTMP), implementation and maintenance of roads was
prepared in 1999. DTMPs are prepared in most of the districts.

Now, more than 30000 kms of rural roads are constructed, but only half of the roads are
operational to vehicle. DTMP investment priorities are not adhered. Completion of
initiated roads is not in priority, more inclined to undertake new roads. With more VDC
grants, numerous roads are constructing every year by VDCs. To address these issues
DTMP Guidelines is modified recently in 2010.

This paper deals on the district transport planning trend since early nineties and its
updating and planning pattern to address the present context of the districts to
accommodate national transport policy, to define, accommodate and re-classify types of
RTI in existence and to look into investment perspective. It emphasises upgrading need,
from fair weather to all weather based on existing and generated traffic volume.

Key words: district transport, planning, financing rural roads

1
MIE (Civil Engg,), M. Sc. (Env. Mgmt), M.Phil (Env. Sc.). Mr. Shrestha was the Team Leader for DTMP project
of HELVETAS Swiss Intercooperation Nepal
2
M.A (Sociology). Mr. Shrestha was the Socio Economist for DTMP project of HELVETAS Swiss
Intercooperation Nepal

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1 INTRODUCTION

1.1 Rural Transport

Transport facilities help to develop the access of rural-urban linkages. Rural transport
reduces isolation, stimulates marketing activities, improves public services and thus
rural connectivity is key component of rural development. Nepal's rugged terrain
prevents people from moving with ease. Nepal’s road network and quality are among
the lowest in South Asia. More than one-third of its people live in more than two hours
walk from the nearest all-season road; In addition, some 60% of road network and most
rural roads are not operational during rainy season. Hence improving fair weather roads
to an all-weather standard and implementing a maintenance system is essential for
Nepal’s economic growth and social welfare.

Planning, implementation and operation and maintenance of district level transport

infrastructure is the responsibility of the District Development Committees (DDCs) with
the assumption that the DDCs can effectively mobilize the local resources and acquire
people’s participation. Now more than 30000 km length of rural road networks have
been constructed (DoLIDAR, 2010), out of which motorized road is 14000 km while all
weather rural roads is 6000 km. But most of the rural are not in complete stage. No
systematic planning process is followed.

1.2 Historical Sketch of Road Transport in Nepal

The historical evidence shows that the Gorkhali rulers had devised a number of
arrangements for maintaining lines of transport and communications from Kathmandu to
different districts. As mentioned by Regmi (1987) these arrangements could be
described under two main headings: An east-west track through the hill region and
postal service for the transportation of official mail and supplies. However, Rana rulers
(until 1950), according to Regmi (1987), refrained from constructing large-scale
transportation infrastructure because they were afraid that economic development
should provide a motive for the British to annex the Kingdom. Road construction
initiative took place after the fall of Rana Regime. The major emphasis on the
construction of a strategic road network during the period of 1950 – 1975 gradually
changed and the country started to focus on constructing roads of regional importance.

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Nepal's first highway Tribhuwan Rajpath connecting Birgunj and Kathmandu was
constructed by Government of India, completed in 1956. The agreement among the
Governments of India, United States of America and Nepal in 1958 to establish the
Regional Transportation Organization (RTO) for building roads is an organized and
planned way on a long term basis, was the first effort in the history of Nepalese
motorized road construction in Nepal (Zimmermann and Rajbhandari, 1995). The RTO
formulated a 20-year program to build north-south roads connecting Indian cities and
railheads along the border. After the collapse of RTO in 1962, Nepal continued its effort
to invite donors and build roads. Second highway Siddhartha Rajmarga connecting
Sunauli and Pokhara was constructed by Government of India. The earlier policy of
emphasizing north-south roads was replaced by the east-west roads like the East-West
Highway (1026 km) and Prithivi Raj Marg (Kathmandu - Pokhara, 176 km). With the
internal resources of Nepal and contributions received from the major donor countries
and agencies like India, China, USSR, UK, USA, Switzerland, Japan, World Bank (WB)
and Asian Development Bank (ADB), Nepal developed the present strategic road
networks.

2 DISTRICT TRANSPORT PLANNING INITIATIVES IN NEPAL

The main national focus since 1990 was the development of district level roads through
mobilizing the local governments and maintenance of the strategic road networks.
Regional and district level projects were implemented in various districts e.g. Rapti
Integrated Project, Koshi Hill Integrated Development Project, RCUP, Palpa
Development Project (PDP), Dhading Development Project (DDP/GTZ) etc.

2.1 District Transport Master Plan (DTMP)

Government has adopted the policy that each DDC should prepare District Transport
Master Plan (DTMP) and should implement the development of transport infrastructure
accordingly. DTMP is the reflection of existing transport infrastructure situation and
future potential in relation with the resources available the District. DTMP essentially
covers the rural transport infrastructures (RTIs), which are funded, supported and
implemented by DDCs. The DTMP preparation strongly advocates meaningful
participation of all key stakeholders in the planning process to make DTMP more
acceptable and ensure ownership. The preparation process goes through a series of

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techno-political activities that include consultation workshops and interactive meetings

with stakeholders to increase participation of all stakeholders. These activities include
district level workshop, District Transport Infrastructure Coordination Committee
(DTICC) meetings and cluster of Ilaka level workshops, formal/informal meeting, focus
group discussions and transit walk, etc. At every stage, careful consideration is given to
ensure access and wider participation of representatives from line agencies, major
political parties, social leaders, women organizations, Dalit and Janjati coordination
committees, differently able people, chamber of commerce, transportation association
etc. The approach is to work towards consensus building.

2.2 Early Initiatives in District Transport Planning

First DTMP was prepared for Dhading District in 1993 by DDP/GTZ. It was named as
Transport Infrastructure Master Plan (TIMP). The idea of preparing TIMP was first
conceived by DDP/GTZ IN 1987. As part of the policy of supporting the construction of
district road that 'the road programme should be executed in line with the overall
infrastructure master plan of the district to be prepared and approved by the district'.
The basic strategy adopted was to cover the district by a combination of roads, road
bridges, trails and trail bridges networks as to reach most of the (80%) area from the
nearest road or mule trail within two hours of walking distance. Five kilometre of aerial
distance was taken as two hours walking distance. Following basic concepts were
utilized in proposing the networks and priorities of the master plan:

• Alignment is to pass through maximum of village settlements lying along the

ridges or mid hill slopes rather than valley bottom.

• Avoid as much as rivers and streams so that construction cost can be kept low.

• Alignment to pass through geologically stable area.

• Preference to alignment, where peoples' participation and resource conservation

approach could be adopted.

• Open up economically active areas to better market access.

• Selection of routes that make possible for local people to extend the proposed
alignment to other villages through local resources mobilisation.

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• Roads and trails so planned that are possible to interconnect with other road
networks within the district or neighbouring districts so as to achieve an inter
district road networks.

TIMP was produced as part of DDP/GTZ support to the two rural road projects in
Dhading district. TIMP made the plan in two categories – medium term and long term.
Medium term plan was assumed to be completed within 25 years and long term after
completion of medium term plan.

Later, during 1994 – 1998, Pilot Labour Based District Road Rehabilitation and
Maintenance Project (PLRP) prepared DTMPs of 4 project districts – Syangja,
Kapilvastu, Rupandehi and Nawalparasi in a systematic process of rural transport
planning.

With the objective of strengthening local governments, the PLRP (Shrestha, 1997a),
initiated the concept of the “District Transport Master Plan (DTMP)”. After a successful
implementation of the master plan in four pilot districts, GoN circulated the national
policy to prepare a master plan for each district of the country. Realizing its significance,
the GoN had established the Department of Local Infrastructure Development and
Agricultural Roads (DOLIDAR) under the MOLD in 1998 (DOLIDAR, 1998).

3 DTMP PREPARATION MANUAL 1999 & CONTEXT OF REVISION

3.1 DTMP Preparation Manual 1999

Prior to 1999, no defined approach for the development of rural road sector by the
government was in place in Nepal. In donor-funded projects, the development activities
were carried out by the concerned implementing agency as per the approach mentioned
in their respective project documents. Due to absence of long-term perspective plans,
ad-hoc practices in fulfilling the needs, under-utilisation of resources as well as the
returns, over investment against the desired benefits, improper utilisation of resources,
under-mobilisation of limited technical human resources, lack of co-ordination among
implementing agencies were some of such problems faced by the Government, with
due consideration to the entire scenario, DoLIDAR prepared Approach manual for
planning, implementation and maintenance in 1999. District Transport Master Plan

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(DTMPs) of district. Now DTMPs are prepared in most of the districts. Updating is
practiced in every 5 years interval. The Approach Manual guides all the DDCs in
preparing their own plans to address the needs of the communities in the districts. Since
its publication, lessons have been learnt from experience and DoLIDAR considers some
requirements and context of RTI sector has changed necessitating some modifications
to be incorporating into the planning process resulting in a DTMP. Experience shows
that there are some complexities in planning process such as networking method and
prioritization process requiring changes to be incorporated in to DTMP. DoLIDAR, has
modified the component relating to the planning process included in the approach.

3.2 Context and Rationale of Modification in Planning Process

The Approach Manual recommends various steps for the preparation of DTMP, such as
VDC data collection, ranking of growth centres, scoring, prioritization, preparation of
perspective plan of rural and agricultural roads i.e. district road, village road, main trail
and village trail and road coding. Since the first publication of the Approach Manual,
important developments in the understanding of the requirement and condition of rural
transport infrastructure (RTI) sector have taken place. These developments have
necessitated that some steps in the planning process mentioned in manual need to be
modified. In particular, some complexities in planning process such as networking
method and prioritization process were experienced during the preparation of the
DTMP. Following issues related to district transport planning necessitated the
modification:

• During the early 90ies, rural roads construction was just begun; hence planning was
based on VDC demands.
• No specific transport policy to address rural access was envisaged. Now GoN has
adopted the policy that people in terai should reach all weather roads within 2 hours
and in hills within 4 hours. This necessitated the modification to accommodate the
national transport policy in district transport planning process.
• With numerous in incomplete stage need to adopt systematic inventory for further
investment in transport infrastructure. Thrust to put in bringing the existing roads in
operational condition.

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• Output from the DTMP is like a wish list of district people, and should be avoided to
include in DTMP the roads that are matched with available resources.
• DTMP need to focus on district level roads. Smaller roads initiated by VDCs could
be covered in village level planning.
• GPS based information is lacking. It should be added to accurately map the
alignment of existing roads.
• Status/condition of rural roads is not required in the current DTMP formats, and this
has created confusion in allocating maintenance fund for rural roads. Therefore,
DTMP should clearly mention the status of road. Additional information to collect
also include:
o Surface types,
o Traffic status and types (pedestrian, 2 wheeler, bus, trucks and others),
o Status of all weather or fair weather,
o Construction status (track, middle width, full width)
o Adequacy of bypasses.
o Bridges/culverts required with location
o Drainage and other features
o Other improvements required (slope stability etc.)
• Bridge inventory is currently not required in the DTMP. Bridges of different types
need to be included as they are required for upgrading the roads from fair weather to
all weather.
• Network planning should be linked with important market/service centres (nodal
points).
• Integrated Rural Access Plan (IRAP) guidelines were used to collect the data for
DTMP. Information is collected from settlement level in IRAP tools. But for district
level planning data from settlement level was not found very relevant. Therefore
IRAP method is found suitable for VDC level transport planning.

4 DTMP PREPARATION PROCESS MODIFIED IN 2010

To address the present context of the districts to accommodate national transport

policy, to define, accommodate and re-classify types of RTI in existence and to look into
investment perspective, DoLIDAR updated and modified preparation of DTMP process

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with the support of DFID and technical support of HELVETAS Nepal in 2010. The
DTMP preparing process goes through a series of techno-political activities that include
consultation workshops and interactive meetings with stakeholders to increase
participation of all stakeholders. These activities include District level workshop, DTICC
meetings and cluster of Ilaka level workshops, formal/informal meeting, focus group
discussions and transit walk, etc.

DTMP Planning Process: A Flow Chart

Fig 1.1: FLOW DIAGRAM
DTMP Planning Process and its Methodology

District Level Workshop

Preparation of District
Transport Master Plan
(DTMP)

Secondary/Primary data collection

Formation/reformation of District Transport Identification of development potential
Infrastructure Coordination Committee area , Marketing survey( focused group
(DTICC) discussion, informal corner
meeting,key informants interview
Data entry/data analysis
Presentation of IDPM in DTICC
meeting
Preparation of Indicative Development Potential Map
(IDPM) of District (Analysis of District Profile - Grading Technical data data collection
of Markets) Traffic Survey
Preparing Base map at field study
Analysis of existing situation of road
networks and plotting at TOP/GIS map
Presentation of DIM in DTICC meeting

Preparation of District Inventory Map (DIM)

Preparing preliminary Road network planning

based on Inaccessible area
Discuss and verify with DTICC
Refine and present proposed Preliminary Road
network in cluster of Illakaworkshops
Get verification and validity of Road networks
Prepared road network

Preparation of District Road Network Plan

Collection of technical and socio-economic data

within the ZOI area of proposed road
Prioritisation of District Transport Perspective Data analysis
Plan (DTPP) Prioritization of proposed roads
Prepare draft DTPP and present at DTICC
meeting
Legend
Preparation of Five Year Transport Investment Plan of
Process District

Decision
Approval of the transport plan by the District
Council

End of planning stage

4.1 Preparatory Activities

a) Coordination with DDC/DTO: The study team remain in close coordination with
District Development Committee (DDC) and District Technical Office (DTO) for
consultation and conduction of several meetings and workshops. Team extensively

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consults with district level authorities and agencies e.g. line agencies, NGOs, local
leaders and businessperson for secondary information.

b) Formation of District Transport Infrastructure Coordination Committee (DTICC): DDC

form DTICC, which function as authorized legislative body at the district level, which
is responsible body at local level for overall transport planning, implementation and
operation in the district.

c) . District Level Introductory Workshop for Techno-political Interface: One-day district

workshop is organised by the DDC in the beginning. Participants of the workshops
are representatives from line agencies, major political parties, VDC secretaries,
media people, NGOs, social leaders, women organizations, representatives of dalit
and Janjati, chamber of commerce, transport entrepreneurs etc. DTMP preparation
process is explained and discussed with the participants.

4.2 Preparation of Indicative District Potential Map (IDPM)

Preparation of IDPM is the basic requirement in determining transport interventions.
IDPM essentially provides indication within the district of the existing and potential
market/key growth centres and the areas having development potentials. Techno-social
interface takes place with extensive interaction with the community of market/nodal
centres and the people along the road corridor. Local level Information to support IDPM
process is collected from the local people during these interactions.

a) Data/ Information collection: Field study is carried out for general socio-economic
assessment of the district. Primary and secondary data are collected from different
sources within the district by using PRRA and consultation methods. Data and
information on area, location and significance of development potential areas such as
extensive agriculture, extensive horticulture, livestock farming, high value cash crops,
cottage and agro-based industries, centre for business/commerce/markets, tourism
area, hydro potential areas, and mining areas, service centres include facility such as
hospital, health post, agricultural service sub-centre, schools, industries are collected.

b) District Base Map is prepared to overlay the potential features. GIS based map is
collected from available sources. Different features are overlaid. The Base Map includes
VDCs/Municipalities with their boundaries; large settlements; strategic roads networks,

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existing district roads and trails; important water bodies, and Important historic and
religious places.

c) Market Survey: Data and information collected from the field are the main basis for
determining the importance on relative importance of market/service centres and central
places. All services available in a particular centre are listed by the district line agencies
and supplemented by a more detailed field data such as economic population structure
and its influence area, using P-RRA approach. For evaluation purposes, information
from district offices are tallied with information obtained from the centre.

Centrality analysis of the market facilities and government services are carried out. The
Centrality Index is calculated using following formula

∑ (W X
n
CJ = i, ij )
i=1

Where,

Cj = Centrality Index of the jth market centre

Xij = value of the ith function (number of establishments or shops at the jth market
centre)

Wi = Weightage of the jth function

The weight of each function is calculated by adopting the Median Threshold Population
Technique. The Median Threshold Population Technique calculates the weight as:

Wi = Median population of the ith function

Lowest median population of the market centres where a function exists

Weights are assigned to different types of economic facilities and government provided
services and are then aggregated. Based on the centrality index, the market centre is
categorised as first grade, second grade, and third grade market/Service centres.
Graded market centres are plotted in GIS based district map.

The values of CI used for grading is as follows:

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Table 4.1: Grading of Market Centre

Grade Centrality Index (CI)

A >100

B 50-100

C 25-50

Potential <25

Graded market forms the basis for network planning in an inaccessible area or requiring
rehabilitation and upgrading of existing roads. The transport network in a district
depends on hierarchy of market/service centres. In the beginning, geographical
positions of market centres are taken from the topographical map. This is verified using
a GPS device during the walkover survey.

d) Preparation of Indicative Development Potential Map: Collected information is

plotted on a base map with its
geographical boundaries. Market
centres with their grading are also
plotted in the IDPM of the district.
Existing road network are overlaid on
the IDPM. Brief notes on each
feature with development potential
are given in the Map.

e) Presentation and Approval of IDPM:

IDPM is presented and discussed in the

DTICC meeting, receive comments and
suggestions and get their feedback. This
process contributes to increased ownership of the planning process. Their inputs are
incorporated approvaed from DTICC.

4.3 Preparation of District Inventory Map (DIM)

With the tremendous increase in the development of rural roads network in the country
over the past few years, the thrust now is to prepare the DIM while preparing the DTMP

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so that the DTMP also provides the baseline scenario of existing strength and condition
of the network, including trails and trail bridges . This is particularly important because
many rural road links are not operational to vehicle due to either poor condition or the
roads are incomplete.

Prescribed formats with desired attributes of the transport structures are used for
inventory of the existing transport status. The following activities are carried out for the
preparation of DIM:

a) Information Collection: Information about existing rural roads, main trails,

historical/heritage trails and trail bridges are collected from secondary sources like
DDC profile, Trail Bridge inventory of TBSU publication, RTI information available in
DTO/DDC, previous DTMP reports and recent TBSU publications.

b) GPS Tracking/Inventory Survey of RTI: This is now the major time consuming field
work in the process of DTMP preparation. The inventory of existing roads is carried out
in order to identify the position of alignments and condition of infrastructures. Road
inventory are taken by GPS and tracking the road alignment throughout. Meanwhile,
information regarding surface type, traffic status, serviceability, surface condition, types
and condition of crossings are also noted with the spatial position from GPS.

c) Traffic survey: PRRA tools are used for collecting information on traffic counts for
low volume rural roads. People and
shopkeepers of the road corridors often
know the exact numbers of vehicle plying
in the road.

d) Preparation of DIM: Existing roads,

main trails, trail bridges and other RTI are
plotted and provided in a DIM. This map
contains all key information to existing
roads including major features and status
showing vehicle operational length,
completed section of roads, section of
roads under-construction etc. These features are plotted in the DIM using GIS. GPS

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data of road alignment is directly uploaded to the map in GIS format. GPS locations
(waypoints) of various structures (cross drainage – bridge, culverts, causeways and
other major structures) are also plotted in GIS based map.

After plotting the operational roads, accessibility situation of the district is analysed.
Analysis is based on the national transport policy of 2 hours in Terai and 4 hours in hills.
The analysis of DIM, results in the identification of required interventions for
maintenance, rehabilitations and upgrading of the transport infrastructures.

e) Presentation and Approval of DIM: DIM and IDPM is presented in same meeting of
DTICC. All the existing networks are discussed. Current accessibility situation of district
is presented. This gives the picture of transport network gap in the district. By
incorporating the comments and feedback, DIM is finalised and approved by DTICC.

4.4 Preparation of District Transport Network

A fixed point system model is adopted for networking where junctions are confined to a
finite set of locations (market, historical location etc). Following is the process in
preparing a District Network Plan (DNP):

a) Prepare GIS map of Nodal Points: The IDPM maps with the position of market
centre representing nodal points are used as Base map. Market centres based on their
hierarchy are plotted in the GIS map. Existing road alignment from the road inventory is
overlaid on the GIS map. These maps are then used as the basic platform for
developing the road network.

b) Delineation of Accessible area:

Based on guiding principle of
Government of Nepal, planning road
network 2 hrs and 4 hrs walking
distance on either side of the road
corridor are taken as the zone of
influence (ZoI). Accessibility coverage
within ZoI of existing road network are
analysed using GIS model. This model
delineates the accessible area to 20

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min, 2 hr and 4 hrs walking distance by buffering along the left and right of existing road.
This delineated area is accessible area. The delineation of walking distance is based on
different feature such as slope of terrain, existence of Trail Bridge, waterways etc.

c) Delineation of inaccessible area: After delineating the accessible areas, the un-
served areas which are beyond the ZoI are considered inaccessible areas.

d) Preliminary road network plan for inaccessible area: Preliminary road network are
planned for inaccessible area based on the market centres as nodal points and covering
the inaccessible are within 2 and 4 hours of walking distance for terai and hill area
respectively. After the selection of Market Centres, road corridors are proposed based
on the topographical features of terrain. Rural roads are categorized into two type of
roads i.e. district roads and village roads. District roads are also functionally of two
types: district road primary (DRP) and district road secondary (DRS). Only District
Roads included in DTMP for prioritisation, while Village Roads are within the jurisdiction
of VDC and are not analysed in the DTMP.

e) Synchronization of DNP with DTPP of Adjoining District: Review of existing/

proposed road networks of adjoining districts are carried out for synchronisation at
regional level. Access links of proposed preliminary road network are identified by
comparing with Perspective Plans of adjoining districts. Synchronisation of transport
network with adjoining district is carried out in cluster of Ilaka workshop.

f) Presentation of DNP: Prior to disseminating information in cluster of Ilaka level

workshop, DNP is presented and discussed in DTICC meeting. Suggestions and
feedbacks are collected from DTICC meeting and incorporated in preliminary proposed
road network plan.

g) Cluster of Ilaka level workshop: Preliminary network plan is presented and discussed
in a cluster of Ilaka level workshops to collect feedback on proposal for DTPP. The
participants of the workshop are the DDC members, VDC Chairpersons, Vice
Chairpersons, VDC secretaries, representatives of major political parties, community
leaders and representatives from women, Dalit, Janjati, NGOs, and local line agencies
etc. Participants are divided into groups of their representative Ilakas and share their

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vision of transport infrastructure network within their Ilakas. The group prepares a list of
potential interventions to the Ilaka members.

h) Socio-economic and Technical Survey: The engineer and socio-economist with the
help of research associate carry out a socio-economic and engineering pre-feasibility
study of the proposed transport linkages. The data collection forms are related to:

 Large settlement areas and their population within zone of influence

 Walking distance on either side of proposed route within 2 hours for Terai and 4
hours for hills.
 Agricultural land within the zone of influence area
 Existing markets, historical place, religious place, tourist attraction etc
 Areas,local resources such as NTFP/ MAPs and hydro power
 Engineering reconnaissance/pre-feasibility study.

4.5 Preparation of District Transport Perspective Plan (DTPP)

After finalizing the road network plan,
socio-economic analysis is carried out
for each proposed linkage on the
following basis:

a) Data Entry and Analysis:

Data is entered and analysis is carried

out (in excel and using GIS applications
wherever possible) of socio-economic
data of influence area of proposed transport linkages collected from field. This covers
the analysis of population, cultivated land, centrality index of market centres, traffic
volume, technical analysis of roads etc.

b) Scoring System for Prioritization: The analysis differs for proposed new corridor and
the existing road link as follows:.

1. Scoring for Prioritization of Proposed New Roads: The aggregate that each
proposed link receives is computed by simply adding the points allocated per

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parameter. The result of this process leads to ranking of the investment options. The
following criteria are used for prioritization of new transport linkages:

Table 4.2: Scoring System for Prioritization of New Linkages

S.N Parameter Scoring Unit Score

Population/investment
I Population per unit Cost 50
Cost in Rs 100,000

ii Cultivated Land Cultivated Land/km 10

iii Inaccessibility Walking hour 15

Environment & Social Safeguard

a) Population of Dalit and Janajati
Population /km 10
b) Alignment type
Ridge
iv 3
Mix
2
Valley
1
c) Loss of Forest/Agriculture land
Ha. 2
due to Road alignment

V Market/Service centre Centrality Index 10

Calculation of scores for Prioritization:

(For high value ranking)

Coefficient = Value / highest Value of Row

Score= Total score X co efficient

(For low value ranking)

Co. efficient = Lowest value of Row/ Value

Score= total score X co. efficient

On the basis of prioritization criteria, transport linkages under the categories of new
construction for each class of roads are prioritized.

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2. Scoring system for Rehabilitation/Upgrading

Following is the scoring of District Roads for rehabilitation /Upgrading.

Table 4.3: Scoring System for Prioritisation for Rehabilitation/Upgrading

S. No. Criteria Scoring Unit Score

1 Traffic Volume Traffic Unit (TU) 70

2 Cost Cost /km 20

3 Market /service centre Centrality Index 10

Total 100

c) After overlaying all new linkages in the DIM, the DTPP is prepared. Merit list of the
roads are according to the scores obtained by individual roads.

d) Presentation of Draft DTPP and Approval.

Draft DTPP is presented and discussed in DTICC meeting and finalised the DTPP
incorporating comments and feedbacks of the participants.

4.6 Preparation of five year District Transport Master Plan (DTMP)

a) List all transport linkages given in the Perspective Plan

List all road linkages given in the Perspective Plan, under the following categories:

• new construction
• rehabilitation
• Upgrading
These lists are prepared separately for District Road Primary and District Road
Secondary

b) Five Year’s Projected Financial Plan

Financial trend of previous three is studied. Then based on the past trend, next five
year’s Projected Financial Plan is prepared by accounting all possible financial
resources of DDC. DTICC allocates the respective new, rehabilitation/upgrading and

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maintenance category of the roads. Based on the approved percentages, tentative

lengths that could be undertaken in each year is determined, in each category and
under each class (new construction and rehabilitation). Budget are allocated for
upgrading of existing roads from fair weather to all weather (earthen surface to gravel
surface etc).

c) Five Year District Transport Master Plan

After the list of prioritised transport

linkage in DTPP and year wise
financial plan, Five Year District
Transport Master Plan is prepared
and DDC approves the plan.

d) Endorsement of the DTMP

DDC tables the District Transport

Master Plan to District assembly for
its approval. DTMP process is
completed after the approval from the
District Assembly.

5 SCORING AND PRIORITISATION OF DISTRICT TRANSPORT SYSTEM

5.1 Parameters for Prioritisation for New Linkage

Following four parameters are used in the prioritization of new road linkages and are
broadly based on socio-economic and technical data related to each individual road
corridor.

1. Population per unit cost: Population is assigned the highest score (50). Population
within the ZoI area are taken as the beneficiaries of a proposed road. the households
within ZOI are counted in a GIS map and then multiplied by average family size. The
current population is projected by applying annual growth rate. Population per unit cost
is calculated from total population divided by investment cost in lakh (hundred
thousand) rupees i.e. no of person per 1, 00,000 rupees. The road having the highest
beneficiaries population per investment cost is given highest score i.e. 50.

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For this purpose, investment cost of road includes the costs of construction,
environmental mitigation and maintenance activities.

Cost of road is calculated for four types of roads:

• New construction
• Rehabilitation/completion of roads under construction
• Maintenance cost and
• Upgrading of fair weather road to all weather (pavement works - gravel,
otta/gravel seal etc.)
These costs vary for terai and the hills as follows.

Hill area: Three types of terrain are considered for the calculation of cost. Cost of valley
aligned roads is the highest in hilly terrain due to more drainage works and sections of
rocky areas. Normally, ridge roads are the least expensive in hilly terrain. Cost of roads
ascending from valley and roads descending from ridge averages between valley and
ridges alignment.

Terai area: No such variation arises in terai road applies. Instead, cost varies mainly
with the width of the road. More realistic cost shall be calculated separately for each
road for different districts after studying the various cost scenarios of each district.

2. Cultivated land

Economic benefit is a broader phenomenon that includes several activities for

prioritisation of roads. To simplify the economic benefit in district roads, cultivated land
within ZoI as per the guideline has been taken as a one of the parameter for
prioritisation of new transport linkage. Cultivated land is calculated from the GIS Map.
Road having the highest area of cultivated land /km is given the highest score i.e. 10.

3. Inaccessibility

Accessibility mapping for new alignment is carried out using GIS modelling. Accessibility
map of existing roads and new alignment is overlaid. Accessibility area of new
alignment is calculated, deducting the overlapping area of existing accessible area. New
accessible area is divided by the total length of road and the road having the highest
area per km is given highest scores i.e. 15.

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4. Environment and Social Safeguards.

The parameter of environment and social safeguards is further categorised into three
sub parameters i.e. a) Population of Dalit and Janajati and b) Alignment Type c) Loss
of forest and agriculture land due alignment.

a) Population of dalits and janjatis: For this purpose, the population of dalits and janjatis
within the zone of influence (ZOI) area is collected from ward level or VDC level
records or from key informants. The road having the highest population of Dalit and
Janajati /km is given the highest scores i.e. 10.

a) Alignment Type: Alignment type is taken as proxy- parameter for assessing

environmental impacts. If the proposed road has ridge alignment, then a score of 3
is given. If it has valley alignment, it scores 1 while a mixed alignment will score 2.

b) Loss of forest and agriculture land due to alignment: Loss of forest/agriculture land
which will be occupied by road alignment is taken as proxy-parameter for assessing
environmental impact. With the help of modelling in GIS, area of forest/agricultural
land occupied by road is identified. The road which occupies the lowest
forest/agriculture land is awarded the highest score i.e. 2.

5. Market /service centre

For evaluation purposes, data of offices, industry, business and commerce, education,
and health are combined for the centre and its influence area. Assessment of economic
facilities and services existing in the market/service centres and their catchments areas
leads to the identification of the most important market/service centre. Scores of all the
proposed roads are calculated by adding the centrality index of each market/service
centres that lie within a particular road corridor (For high value ranking)

5.2 Scoring system for Rehabilitation and Upgrading

Traffic volume, cost and market centres are three parameters considered for scoring of
rehabilitation and upgrading of the existing roads

1. Traffic Unit

Data on traffic volume is collected from field surveys. Data on traffic movement is
gathered from RRA and discussions with key individuals within the road corridor and at

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district and village level meetings. Scores are awarded on the basis of estimated traffic
volumes on each of the roads for rehabilitation and upgrading. Using traffic coefficients
given in guidelines are used. (e.g. trucks more than 10 tons and buses over 40
passengers are given a weight of 4.0 traffic unit)

2. Cost for Rehabilitation/Upgrading

Cost estimate is based on the data collected during the walkover survey for inventory of
existing road. Unit costs are calculated on the basis of district rate for labour and
materials. The road link having the lowest per km cost gets the highest score i.e. 20.
(For low value ranking)

3. Market /service centre

Scores for the roads are calculated by adding the centrality index of each
market/service centres that lie within a particular road corridor (For high value ranking)

4. Prioritisation of Proposed Trail Bridge

Prioritization is based on the following formula derived on the basis of a simulation

model using indices developed by ICIMOD and by Trail Bridge Support Unit (TBSU),
DoLIDAR that relate to poverty, education, health etc as follows:

Prioritization Formula for New Construction

SSTB {(2.041 P+2.856 MP)×DG} × {{(12-RT)×(1+RF/100)}/12}

LSTB 0.3 × {(2.041 P+2.856 MP)×DG} × {{(12-RT)×(1+RF/100)}/12}

Prioritization Formula for Major Maintenance

SSTB 2 ×{(2.041 P+2.856 MP)×DG} × {{(12-RT)×(1+RF/100)}/12}

LSTB 1.2 × {(2.041 P+2.856 MP)×DG} × {{(12-RT)×(1+RF/100)}/12}

Prioritization Formula for Rehabilitation

SSTB 1 ×{(2.041 P+2.856 MP)×DG} × {{(12-RT)×(1+RF/100)}/12}

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LSTB 0.3 × {(2.041 P+2.856 MP)×DG} × {{(12-RT)×(1+RF/100)}/12}

Where,

P= Population i.e. the beneficiaries population of the prospective bridge

MP= Marginalized population (total dalit + marginalized janajatis + total minority + total
poor from other caste)

DG= Distance Gained

R= River Type (no. of months crossable without a bridge)

RF= Risk Factor (Percent of population that has died within the last five year).

5.3 Comparison between Manual 1999 and Modification 2010

1 Planning process

National Transport Policy envisages policy that each settlement should have access to
all weather roads in 2 hrs in terai, 4 hrs in hill area. This is the guiding principle
incorporated in revised guideline for proposing new roads in inaccessible area.
Whereas, situation was different earlier, hence demand was collected from VDCs and
screened for planning purpose.

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Previous Approach Manual 1999 Revised Approach Manual 2010

 More Political influence took place  Techno-political interface is the basis of
than technical input participation in planning
 Demand of intervention of transport  Planning based on accessibility situation of
linkages were collected from each road network in line with National Transport
VDC and synchronized demanded Policy of 2 hrs and 4 hrs.
linkages in Illaka level workshop and  Preparation of a GIS map of nodal centres
finalized from district level workshop, (reflecting the grading of market centres)
due vested interest of political parties  GPS tracking of each existing District Roads.
and influential people, demands  GIS Modelling to delineate accessible and
does not represent the real need of inaccessible area
district it looks like wish list. It  DTPP is prepared based on accessibility and
consumes long time to complete inaccessibility situation for all weather and
whole planning process fair weather roads.
 GPS data of Existing Road Networks  New constructions are proposed for
was not collected so it was very inaccessibility area.
difficult to update every year.  Priority is given to rehabilitation/upgrading of
 Classification of road as District existing roads.
Road, Village Road, Main Trail,  District roads are classified in District Road
Village Trail and Rope Way Primary (DRP) and District Road
 DTPP/DTMP is prepared based on Secondary(DRS),
digitized Map using Topo Map of  Traffic volume of each existing roads are
department of Survey collected
 Score of traffic unit of some traffic are been
modified
 Modeling is used to identify zone of influence
area.
 DTPP/DTMP is prepared based on GIS Map

2 Scoring and prioritisation criteria

A network consists of several links. It is not possible to construct all roads at the same
time due to resources and time constraint. Therefore each link in a network should be
prioritised. Each road is allocated a score corresponding to agreed criteria. The
aggregate that each proposed link receives is computed by simply adding the points
allocated per parameter. The result of this process leads to ranking of the investment
options. Comparison of criteria for prioritisation for new construction, rehabilitation/
upgrading of rural roads is as follows.

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New Construction: Two stages of scoring: Scoring and prioritisation criteria are
Stage 1: screening and grading of linkages simplified based on National transport
Stage 2: prioritizatin of linkages. policy. New linkages are proposed only for
Demands are screened and graded & decided inaccessible area. So screenings of roads
as follows: is not recommended in revised manual.
(a) When total score is more than 60, select the
linkage as a road. New Construction
(b) When total score is between 41 and 60,
select the linkage as a trail.  Population per unit cost (score: 50)
(c) When total score is less than 41, no  Cultivated Land (score:10)
consideration is given to the demand.  Inaccessibility ( score: 15)
 Environment & Social Safeguard
Linkages securing more than 60 score, are a) Population of Dalit and Janajati
prioritised based on following criteria (score:10)
b) Forest/Agriculture land used by Road
 Total score (w) received under Criteria ‘B’- width (score: 5)
ranging from 61 to 100 marks (score: 60)
 Tentative investment per km (score: 20)  Market/Service centre (score: 10)
 Social and environmental issues of concern
(score: 20)
Rehabilitation/Upgrading
Rehabilitation  Traffic Volume( score: 70)

 Total score (w) received under Criteria ‘B’ -  Cost score: 20)
ranging from 61 to 100 marks (score: 25)
 Tentative investment per km (score: 15)  Market /service centre(score: 10)
 Social and environmental issues of concern
(score: 15)
 Serviceability of the road (score: 20)
 Traffic Volume (TU per day) (score: 25)

Periodic Maintenance
 Readiness for participation at local level
(score: 30)
 Tentative investment per km ( score: 30)
 Traffic Volume (TU per day) (score: 40

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6 CONCLUSION
Adherence of DTMP: Though DTMP is prepared, most of the DDCs did not follow it
during the implementation of transport infrastructure. Only donor funded projects
followed while undertaking the transport infrastructure. Unplanned and haphazard
construction is taking place. This has resulted in wastage of resources and serious
degradation of environment, particularly in hills. Therefore all the districts should follow
the DTMP during the implementation of transport infrastructure. Otherwise this will lead
to wastage of resources and serious degradation of environment.

Techno-political interface is found very useful in planning exercise to make decisions

transparent and practicable to implements. Therefore DTICC is more elaborate than
previous practice. DTICC should not functional to the extent as it is envisaged. It is
involved during the preparation of DTMP only. It should be functional during
implementation and operation and maintenance phase of the transport infrastructure.

Use of GIS and GPS: Use of GPS to collect data of Existing Roads is very useful to
identify condition of roads based on that required intervention can be determined.
District technical staffs deployed for transport infrastructure needs to be familiar in
handling GPS and GIS to understand and update the status of transport infrastructure in
the district and should closely work with DTICC.

Road plus activities during implementation: Road alone or in isolation will not help the
overall goal of uplifting socio-economic condition of the people. Integrated effort is
required from all the sectors to improve the rural situation. Taking market centre (with
grading) as nodal point and basis of road network planning is creative. It not only
connects settlements to the more functional market/service centre, it also helps the road
corridor to be transportable. Therefore while implementing the transport infrastructure;
collaborative mechanism is to be adopted with other agencies working to support
economic activities, particularly the agricultural and income generating activities. This
greatly helps to sustain the operation and maintenance of the transport infrastructure.

Dissemination of DTMP: DDC being an umbrella institution in overall development

activities of the district should request all the development institution within the district to
integrate the activities in line with DTMP. Summarised version of DTMP should be
distributed to all the development offices in the district to help the line agencies to plan

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their future activities keeping in view of the future development of road network in the
district. Similarly summarise version of the DTMP is to be distributed to all the VDCs of
the district, so that VDCs could plan to link its village and settlement level rural transport
infrastructure (RTI) and other development activities.

Now with the increased resources available to each VDCs from the central bock grant,
each VDCs are undertaking the RTI in unplanned and haphazard manner. Most of
these RTIs are not in operational. VDCs are to make Village Transport Plan (VTP), so
that each VDC could invest its resources in sensible manner.

Maintenance of RTI: If timely maintenance RTI works is not carried out, it could get
deteriorated and service could not be received. Rural roads, in particular easily get
damaged during monsoon. Maintenance works is getting enough thrust in the policy
level documents prepared by DoLIDAR and ministry, but real is not taking place in the
field. Therefore DDCs should be further strengthened and monitored for proper
maintenance of RTI.

References:
1. DDP/GTZ (1993), 'Transport Infrastructure Master Plan for Dhading District',
Dhading Development Project/GTZ, Kathmandu, Nepal, March 1993

2. DOLIDAR (1999), ‘Approach Manual for Preparation of District Transport Master

Plan’.

3. DOLIDAR (2010), ‘Approach Manual for Preparation of District Transport Master

Plan’. (Prepared with the support of RAP/DFID and technical assistance from HELVETAS
Nepal).

4. Helvetas (2010) 'Project Completion Report for DTMP Project of SWAp Pilot
Districts' Rural Access Programme/DFID Nepal, Kathmandu Nepal.

5. DOLIDAR (1988a). DOLIDAR Newsletter, Lalitpur, Nepal.

6. DOLIDAR, 1998b. Implementation Directives of the Agricultural Roads. Kutikhel,

Lalitpur, Nepal.

7. DOLIDAR, 1998c. Work Norms for labour-based construction work of agricultural

and rural roads. Kutikhel, Lalitpur, Nepal.

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8. PLRP, 1997a. Work Report on District Transport Master Plan – Nawalparasi. Butwal,
Nepal.

9. PLRP, 1997b. Work Report on Classification and Design Standards for District
Roads. Butwal, Nepal.

10. PLRP, 1997c. Work Report on District Transport Master Plan – Rupandehi. Butwal,
Nepal.

11. Shrestha, C. B., 1997a. Experience Report on Transport Planning and Institutional
Strengthening.Butwal, Nepal: PLRP.

12. Shrestha. C. B., 1997b. Manual for the Preparation of a District Transportation
Master Plan. Butwal, Nepal: PLRP.

13. SIDeF (Sustainable Infrastructure Development Foundation), 1998a. District

Transport Master Plan – Palpa District. Kathmandu, Nepal: Helvetas- Nepal

14. SIDeF (Sustainable Infrastructure Development Foundation), 1998b. District

Transport Master Plan – Achham District. Kathmandu, Nepal: Helvetas- Nepal.

15. .Regmi, M.C., 1987. An Economic History of Nepal (1846-1901). Varanashi, India:
Nath Publishing House.

16. Zimmermann, J. and Rajbahandari, B.C., 1995. A Historical Overview of Expansion

of Roads in Nepal and Development of Department of Roads. Lalitpur, Nepal: A
Paper Presented in a Talk Program on 5 June, 1995 in Swiss Development
Cooperation.

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