The Core Network is the network of all the Rural Roads that are necessary to
provide basic access to all the Habitations. Basic access is defined as single
all-weather road connectivity to each Habitation. As already indicated, the
effort under the PMGSY is to provide single all-weather road connectivity to
each eligible Habitation by way of connecting it to another Habitation having
all-weather connectivity or to an all-weather road, in such a way that there
is access to, inter alia, Market Centres.
Core Network is extracted out of the total Network mentioned in the DRRP and
consists of existing roads as well as the roads required to be constructed to
the as yet unconnected Habitations. However, it will not consist of all the
existing roads of the DRRP since the objective is to establish ‘basic
access’ i.e., one all-weather road connectivity to each habitation.
Why Core Network
The Core Network has the following advantages:
will help in optimising the requirements of fresh construction and
upgradation, for ensuring connectivity to all the Habitations.
is primarily intended to mark out the essential network that is required
to be maintained in good condition at all times.
would optimise the resource allocation in respect of the network
management within the District.
Steps Involved in Establishing the Core Network
The following four major steps are involved in establishing the Core Network.
Block Maps as part of the District Rural Road Plan process.
the Market Centres.
the Network of roads to provide single access to the eligible habitations.
the roads by giving them code numbers.
steps are explained below:
Preparation of Block Maps
The preparation of the Block Maps using topographical Maps at 1:50,000 scale has
already been explained in Para 3.1.7 for preparation of the district Rural Roads
Plan. It may be ensured that the Block Maps show the following:
Habitations upto a population of 100.
roads viz., NH, SH, MDR and Rural Roads, constructed by different agencies
including the roads under construction as well as cart tracks and paths
(in hilly areas especially).
office location like Block & Tehsil headquarters.
Panchayat Headquarters, Patwari office etc.
Service facilities (including veterinary facilities).
Centres and Rural business hubs.
notified by State govt. as being of tourist interest.
Centres, Administrative Centres like sub divisional headquarters and main
roads which are outside the Block boundary but serve the Habitations in
the Block must also be marked, outside the Block boundary.
Identification of Market Centres and Rural Business Hubs
Before preparing the Core Network, one needs to identify all the Market Centres
in the Block. This is because an analysis of the transport patterns in the rural
areas reveals that most of the travel is to the Market centres. These are
generally located either on bigger roads or at the confluence of roads leading
from a number of Habitations. Because they are easily accessible from the rural
hinterland and are linked to the main road network, they function as Rural
Business Hubs and generally have facilities for marketing of agricultural
surpluses, Banking and telecommunication facilities, large stores for
agricultural inputs as well as consumer items (durables and consumables).
Facilities like agricultural equipment repair shops may also exist. Consequently
they are likely to have developed public transport, Higher Education and Health
care facilities. The Market Centres should be identified using the data
available from published Census records/information available from Marketing
Board/ local enquiries. For purposes of inclusion in the Core Network, market
centres need to be identified to the extent that the local villagers should be
able to go to the Market centre and come back within the same day. The maximum
distance between a village and a Market centre would thus normally not be more
than 15-20 km. In some areas, the Market centres may not be fully developed. In
such cases the big villages having potential for developing into suitable Market
Centres because of road connectivity etc should be identified. All the Marketing
Centres should be marked on the Block Map.
Identification of the Core Network
There are three types of habitations in the Block Map – those which are
connected, having all-weather roads, (ii) those which are not connected at all,
(iii) those which are connected only by a fair-weather road. In the case of
connected Habitations, it is possible that there are more than one road
connections. In such a case, one road should be selected using Socio- Economic
infrastructural parameter criteria. If, for any reason, an alternative road is
the preferred choice of the local people, that road may be chosen, but, in any
case, only one road should be selected for the Core Network, as the intention is
to provide Basic access. In case of unconnected habitations, a suitable road
connection should be identified, which would generally follow the alignment of
an existing track. If there is more than one track, selection has to be made on
the basis of the parameters, as already explained in 3.1.8.
Core Network Plan shall thus be prepared for the entire Block. It should be
checked again that all the Habitations are connected or will be connected to the
nearby Market Centres, either directly or indirectly through other all-weather
roads. It is not necessary that each Habitation is directly connected to the
Market centre in a hub-and-spoke configuration.
by the definition of an all-weather road given in Chapter-1, it is not necessary
to provide a road to a Habitation that is within 500 metres of an already
connected habitation or an all-weather road. All such habitations should be
treated as falling on the concerned road.
proposals received from elected representatives including MLAs and MPs,
Panchayats, and local population must be properly examined as these ca0n provide
very useful information about the missing bridges, missing links and other
priority demands of the local community. The existing road Network, location of
major Market Centres, topographical features, and local travel pattern should be
kept in mind. While deciding the Core Network, the fact that it will be used
primarily by the local people must be uppermost in the mind.
Numbering of Core Network Roads and Tabulation of Data
Operations Manual for Rural Roads Once the Core Network is identified, the
details of all these roads should be listed in the Proformae CN 1 to CN 6. The
Proforma are given at Annexure 3.5. The data in the Proforma should be uploaded
or entered in the DRRP Module of the Online Management and Monitoring System (OMMS).
For purpose of numbering, it is always better to start with the North-East
corner of the Block and workout clock-wise giving progressively higher numbers.
In some areas, even the Network of higher order roads like Major District Roads
(MDR) and State Highways (SH) may not be fully developed. Many of the major
bridges may be missing. The investment in Rural Roads will not show expected
results unless these major roads and bridges are constructed. The requirements
of such roads and bridges may be identified even though these are not to be
included under the Pradhan Mantri Gram Sadak Yojana. Such information should be
provided to the State PWD to incorporate these in their plans.
Approval of Core Network
The procedure to be adopted for the approval of the Core Network shall be the
same as that for the Master Plan (Para 3.1).
IMPLEMENTING THE CORE NETWORK PLAN
Comprehensive New Connectivity Priority List (CNCPL)
The Core Network is the only basis for selection of works under PMGSY. Once the
Core Network is ready, the States are required to prepare Comprehensive New
Connectivity Priority List (CNCPL), at Block and District level, of all proposed
road links under PMGSY (with road code, names of habitations being connected
with habitations code, population served and length), grouping them in the
Connectivity [where eligible in respect of Hill States (North-East, Sikkim,
Himachal Pradesh, Jammu & Kashmir, Uttaranchal) and the Desert Areas (as
identified in the Desert Development Programme) as well as the Tribal
(Schedule V) area].
CNCPL list will be prepared with the following format:
to be connected
status(earthen track etc.)
& no. of TR associated
– Core Network / TR – Through route / LR - Link Route)
priortisation may be done in one of several ways, but whatever methodology is
selected has to be uniformly applied in the State. The basic features of the
prioritisation methodology would have to be as follows:
proposed links would need to be categorized in the Order of Priority at
prioritisation within the Order of Priority may be done with the State,
District or Block as the planning unit, as convenient.
a given Order of Priority and a given planning unit, the listing can be on
basis of total population benefited.
refinements in terms of population per Km. benefited, etc may be adopted
if found useful.
on whether State or District is the unit, the SRRDA or PIU will prepare the
CNCPL (and CUPL, See para 3.3.3).
Prioritisation of New Connectivity Road Works in Annual Proposals
The issue of criteria for selection of roads to be taken up has figured several
times in Parliament and its Committees and it is apparent that the District
Panchayats in the States need to adopt a uniform and objective methodology in a
transparent manner, and to also enable full consultation with lower level
Panchayati institutions and elected representatives.
the Core Network is now the basis for making Annual Proposals, and as given in
Para 3.3.1 above, a Block/ District-wise Comprehensive New Connectivity Priority
List (CNCP List) has been prescribed, all consultations for new connectivity
will be based on such lists, and Panchayati Raj Institutions and Elected
representatives may be furnished a copy of the relevant up-to-date CNCP List in
order for them to indicate their choice of road works. Where road works of a
higher Order of Priority still remain to be taken up, road works of a lower
Order of Priority will not be taken up in the same District except when it is
not feasible to execute the road work for reasons of non-availability of land
etc. While finalising the District proposal, the District Panchayat shall record
reason for such cases.
Upgradation works will be proposed in a district only if no new connectivity
remains to be taken up. The selection of roads for upgradation will be done on
the basis of a Road Condition Survey (Annexure 3.6) of the Core Network of the
District which will establish a Pavement Condition Index (PCI) on a rating scale
of 1 to 5 (see Chapter 14, and Annexure 14.7). After the Road Condition Survey
is completed, a Comprehensive Upgradation Priority List (CUPL) for the District
shall be prepared.
only exception is if the Through Routes in the District are in such poor
condition that the new connectivity link does not give all-weather farm to
market access. In such cases, from the CNCPL, it is possible to identify such
Through Routes (called associated Through Routes) and conduct a Road Condition
Survey for such roads only, in order to be able to decide whether or not they
need to be upgraded along with the new connectivity of the attached link road.
Road Condition Survey results will first be entered into the PCI register and
the Road Master under OMMS in all cased. In cases where no new connectivity is
involved, the PIU will then prepare the Comprehensive Upgradation Priority List
(CUPL) for the District based on the following:-
roads to be included in the CUPL will necessarily be Through Routes
already included in the Core Network. Presently sealed-surface all-weather
roads with PCI more than 2 and sealed-surface all-weather roads which are
less than 10 years old (even if PCI is less than 2) will not be taken up
will be Through Routes which are presently WBM roads. In such cases,
upgradation will comprise of bringing the existing profile to good
condition (along with improvement in geometrics, necessary drainage works
and road signages) and providing the appropriate crust and surface as per
II are other fair weather through
routes or gravel through routes or through routes with missing links or
lacking cross drainage. In such a case upgradation will consist of
converting the road into an allweather one with appropriate geometrics and
all necessary provisions.
III will be other through routes
which are at the end of their design life, whose PCI is 2 or less, i.e.,
are ‘poor’ or ‘very poor’. In such road width, surfacing, etc., as
per normal projected traffic requirements.
each priority class, qualifying roads will be arranged in order of
population served (directly and through population served in link routes),
as a rough indication of traffic expected. However, States are advised to
conduct an Average Daily Traffic (ADT) Survey at the earliest. Based on
the time at which the traffic survey is carried out (such as Peak or Lean
Seasons) the same is to be adjusted for seasonality in order to arrive at
the Annual Average Daily Traffic (AADT) count, which is the basis for the
prioritisation as well as the design. (An axle load survey may also be
carried out, on selective basis, on the roads where heavy traffic is
expected with wide variations in the Axle Load Spectrum. Proposals for
this purpose approved by NRRDA will be eligible for reimbursement of
case, in any District, the Through Roads defined in the Core Network do
not belong to the Rural Roads category, the main rural links (emanating
from the Through Route) will be considered for upgradation on similar
lines indicated above. The basis for Prioritisation will be, in addition
to PCI, the population served by the link in each category. In such cases
the selection will be validated by the STAs and data entry made in OMMS
Road Master accordingly after categorising them as main rural links (MRL).
The work of preparing the CUPL will be taken up only in those districts which
are likely to complete new connectivity to eligible habitations within the next
1 year. The list will be prepared District-wise for each Priority class on the
following proforma (where only a truncated portion of the road is to be taken
under upgradation, only that portion needs to be mentioned by chainage):-
District______________ Priority Class______________
code in CN
of Through Route / MRL*
of Last Periodic Renewal
Populations of the habitations served by the road
where TR is not a Rural Road
The CUPL will be got verified on the ground on sample basis through the STAs and
the NQM system before it is processed for further approvals. The STAs will do
100% verification on the basis of the PCI data given by the District and sample
After the CUPL is prepared and verified, it shall be placed before the District
Panchayat for approval thereafter it shall be vetted by the State level Standing
Committee (SLSC). After the District is eligible to take up upgradation works,
annual proposals will be made for upgradation in the same manner out of the CUPL,
as new connectivity proposals are made out of the Comprehensive New Connectivity
Priority List (CNCPL).