Public Private Partnerships in Roadways: Agra –Lucknow Expressway and Reflections

Dr. A. A. Attarwala
Director
Email Id: dr.attarwala@gmail.com
&
Prof. C. S. Balasubramaniam
Kohinoor Business School, Kurla Mumbai – 400070
Email Id: prof.cs.bala@gmail.com

Abstract

Many states in India have resorted to Public Private Partnership (PPP) for financing
infrastructure and other public utility services. Over the past 15 years, the economy has seen
significant progress in the use of PPPs across sectors like roads, airports, ports and power. PPP is
an agreement between the government and the private sector for the purpose of provisioning of
public services or infrastructure with a common vision, the enterprise of both the sector is
blended in a platform for accomplishment of mutual benefits. Conventional project models aim
at completing the projects on time, within budget, and according to requirements. Rarely do
projects focus on business results or on changing at mid course to better adjust to customer
needs. Agra –Lucknow Expressway of a length of 302 Km has been completed in a record time
of 23 months at a cost of Rs.13, 200 Crore stands out as a testimony of PPP in 2016. This
research paper would examine the factors which have contributed to the grand success of a
multi-dimensional scale. It would propose to adopt a new approach /model for infrastructure
project evaluation based on prime dimensions: Novelty, Technology, Complexity and Pace
(NTCP) as developed by Aaron J. Shenhar and Dov Dvir of Harvard Business School. Vijay Kelkar
Committee on Infrastructure Projects also emphasized this approach. Our research paper would
conclude with reflections emerging from the success of PPP projects and contribute to the area of
Project Management.

Keywords: Public Private Partnership (PPP), Project Management, Financial Models, Diamond
Model, Risk management.

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Introduction

Many states in India have resorted to Public Private Partnership (PPP) for undertaking
infrastructure projects and other public utility services. With the recent policy focus in India has
been on Infrastructure development, a spurt in variety of infrastructure projects has been
observed in all over the economy. Twelfth Five year Plan (2012-17) also laid special emphasis
on infrastructure development as quality infrastructure is important not only for sustaining high
growth but also ensuring that the growth is inclusive. However, over the past few years, need
has been felt to kick –start the stalled infrastructure projects by stepping up infrastructure
investment, improving the productivity and quality of infrastructure spending, removing the
procedural bottlenecks and improving the governance. In the contemporary perspective, the real
challenge is not only to identify channelization of investment for viable infrastructure projects
and expedite their implementation by addressing issues like delays in regulatory approvals, land
acquisition, and rehabilitation in fast-track mode. Failures in the projects have arisen due to
adopting traditional project management techniques which are based on standard and formal
approach/models. In the past, project evaluation models are generally based on conventional
techniques. Conventional project models aim at completing the projects on time, within budget,
and according to requirements. The conventional models can be applied to only a small group of
today’s infrastructure projects. Many of the infrastructure projects are complex and changing and
they are strongly affected by the dynamics of environment, technology or markets. The extent of
unpredictability, contingency and change would be different for various kinds of infrastructure
projects, rather than ‘one size does not fit all ‘approach/model. None of the realities are included
in the discussions of classic project management textbooks or guides /manuals. Under this
perspective, our research paper attempts to present a paradigm shift in the evaluation of
infrastructure projects in Indian context, with emphasis on Roadways.

I.1 Public Private Partnership (PPP) Models

There is no widely accepted definition of a Public Private Partnership (PPP). It can be simply
understood as a method of “infrastructure financing.” In broad terms, PPP refers to an
arrangement between the public and private sectors with clear agreement for the delivery of
public infrastructure and/or public services. Infrastructure projects often require huge
investments and expertise which public authorities are not always able to provide. Infrastructure
finance projects enable public bodies such as governments or municipal authorities to raise
money quickly and also access knowledge for the timely and successful delivery of public
services. Main features of PPP are discussed here:

Key Project parties

As the project moves from the development stage to financing stage and thereafter to
construction and finally to operation, several project parties get involved into with the project. A
brief description of each of the parties and their typical role is given below.

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 Project Parties Fundamental Responsibilities
Project Sponsors are responsible of converting a concept into a project and
having a role in setting up a project vehicle, identifying and recruiting right
Project Sponsors
managerial talent to implement and run the project, providing a clear
mandate to such management on their expectations
The Special Purpose Vehicle (SPV) is responsible for delivering a
bankable project during the financing phase, implementing the project, and
thereafter operating it in a manner that is financially viable. Its elects and
Project Vehicle
appoints all the project contractors, negotiates and executes the contracts,
either directly or through an Operations and Maintenance (O&M)
Contractor.
Project Lenders provide debt to finance the construction of the project.
Typically a consortium of project lenders, led by a “Lead Bank “,
ascertains a bankable project cost and in consultation with the SPV and the
Project Lenders
project sponsors develops the patterns of financing the same. Project
lenders are generally secured by project assets and do not normally
interfere in the day to day operations of the SPV.
Typically an Engineering Project Construction (EPC) contractor designs
the project, procures all the engineering skills and equipment to construct
EPC Contractor the project, erects all the project facilities, ensures that test and trial-runs
are completed, and finally commissions the project, all on a turnkey basis.

As the name indicates, the O&M contractor is responsible for operating

and maintaining the plant in line with industry best practices. Performance
O&M Contractor
parameters that need to be achieved during operations are pre-defined in an
O&M.
The government is a key project party. It provides a concession to the SPV
to set up the project and ensures that a proper legislative and regulatory
Government
framework exists that allows the concerned SPV to compete on a “level
playing field” along with existing, possibly government owned entities.

The most successful partnership arrangements draw on the relative strengths of both the public
and private sector in order to establish complementary relationships between them. Where
traditional procurement models begin with the question of what assets the public body has at its
disposal and how these might be used to deliver required services, PPP arrangements place the
emphasis on the desired service or outcome as identified by the public organization and how the
private sector might help to make this happen.
 Adopt competitive bidding procedure for bidding and awarding of infrastructure projects
under defined rules and procedures according to best international commercial practices
and GOI guidelines
 Designate a State-level dispute resolution mechanism for the speedy resolution of
disputes relating to PPP projects
 Adopt formal State policies on environment, resettlement and social safeguards with
respect to the implementation of infrastructure projects, according to best international
commercial practices.

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I.2. A Paradigm change in the Project Evaluation Model: Diamond Approach for
Infrastructure projects
Infrastructure projects can characterize as roads, buildings/constructions, railways, irrigation and
can be governed by varied regulatory authority / boards. These projects have to conform to
certain defined standards, meet the approvals and face several risks in terms of time, scope and
costs. As the infrastructure projects move from drawing boards to implementation and further to
completion stages, public policy and political considerations need to be addressed in a big way
Aaron J. Shenar & Dov Dvir of Harvard Business School have considered the aforesaid
dimensions among the infrastructure projects and presented a diamond –shaped framework to
distinguish and develop the project evaluation model based on four prime dimensions: Novelty,
Technology, Complexity and Pace (NTCP). The Diamond is designed to provide a disciplined
tool for analyzing the expected benefits and risks of a typical infrastructure project and
developing a set of rules /criteria and performance behaviours for each project type. If the project
base and planning is addressed in a typical way, uniqueness of managerial styles for dealing with
project implementation can be determined. The diamond analysis is also beneficial in assessing
the project in midcourse, identifying possible gaps/deficiencies in a troubled project and
selecting remedial actions to put the project back on track. Ultimately this approach will lead to
common medium for discussion among top executives, managers, project financiers /bankers and
users/customers during the project approval, contracting, and monitoring towards completion /
maturity phases.

The four bases of the Diamond Approach are described as follows:

 Novelty – This base represents the uniqueness and uncertainty of the project’s goal,
the uncertainty in the market/users or both. It measures how new the project’s
product/services are to the customers /users or to the market in general and thus how
clear and well defined the initial product /service requirements are. Novelty includes
three types: derivative, platform, and breakthrough.
 Technology – This base represents the project’s level of technological uncertainty. It
is determined by how much new technology is required. Technology includes four
types: low tech, medium –tech, high-tech and super high-tech.
 Complexity – This base measures the complexity of the product/service, the task and
the project organization. Complexity includes three types ; assembly , system and
array (or system of systems )
 Pace – This base represents the urgency of the project – viz., how much time there is
to complete the job. Pace includes four types : regular, fast/ competitive ,time critical,
and blitz

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Each dimension affects infrastructure project management in its own way. Novelty affects the
time it should take to freeze the product /service requirements, accuracy and reliability of
marketing/demand potential data. Technology affects how long it should take to get the design
right and freeze it, the intensity of the technical skill /activities required to be provided by the
project team. Complexity impacts the project organization and the level of bureaucracy,
procedural clearances /bottlenecks and formality of the organizational bodies /governing
/regulatory bodies needed to manage the implementation of the infrastructure project. Pace
affects the planning and reviews in the projects undertaken, the autonomy of the project team and
the involvement of top management, particularly in the most urgent projects.
1.3 Vijay Kelkar‘s Panel Recommendations
Hon’ble Minister of Finance Shri Arun Jaitley has emphasized a vital role for Public Private
Partnership (PPP) for development of infrastructure projects and kick start the stalled large
infrastructure projects in the Budget speech made on February 29, 2016. Based on the Union
Budget 2015-16 announcement made by Shri Arun Jaitley, Finance Minister , Vijay Kelkar’s
Panel made strong recommendations , which include :
- Strengthen 3 key pillars of PPP framework – governance, institutions and capacity.
- Structured capacity building programmes for different stakeholders.

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 - A national level institution to back institutional capacity building activities. The report
pitches for pragmatism, transparency and a business-like attitude for all stakeholders. The
panel wants full disclosure of few items prior to the renegotiation:
- Long-term costs
- Risks and potential benefits
- Optimal allocation of risks across PPP stakeholders to boost investment.
- Sector specific model concession pacts to capture interest of all stakeholders
- Financial implications for the government
- Kelkar panel has recommended clear-cut norms on resolving issues and clarifying norms
on re-negotiation of contracts. “Unsolicited Proposals (“Swiss Challenge”) may be
actively discouraged as they bring information asymmetries into the procurement process
and result in lack of transparency and fair and equal treatment of potential bidders in the
procurement process
- Formulate a national PPP policy and seeking Parliament’s support for it to be effective.
- It emphasized upon the need to establish independent sector regulators for faster
implementation of infrastructure projects and swifter dispute resolution mechanisms.
- The report stated that the PPP structure should not be adopted for small projects.

Kelkar Panel added that the government should encourage development of airports, ports and
railways through PPP, by ensuring easier funding for projects with long gestation periods. For
the highways sector, which is the most dispute-ridden, the committee recommended that all
pending disputes including change of scope, delayed land handover, delayed commercial
operation dates, termination, cost overruns, delayed payments, penalties and claims may be
disposed of in a time-bound manner through an independent body with representatives from the
National Highways Authority of India, developers, lenders and an independent chairman.

II. Indian Road Network and Infrastructure project evaluation models:

The Ministry of Road Transport and Highways is responsible for development and maintenance
of NHs. The National Highways Act 1956 had not specified / defined the term ‘National
Highway’. The government focus has primarily been on augmenting the NH infrastructure. The
Indian Road Network has National Highways (NHs), State Highways (SHs), Other PWD roads,
rural roads (RRs), urban roads and project roads. State Highways (SHs) are the arterial roads
within state connecting state capitals, district headquarters and important towns and cities. Other
PWD roads are the main roads for intra –district movements. The State / UT Government are
responsible for SHs and OPWD roads. Rural Roads include Panchayati Raj roads under Jawahar
Rozgar Yojana (JRY) and “Pradhan Mantri Gram Sadak Yojana (PMGSY) that connect rural
areas to the nearest major road. It has been executing the roadway projects on the basis of
considerations such as traffic density, economy and political priority. It may well be the case that
when being declared NH in such highways do not have design features similar to NHS
administrated by the Government of the India, all the aspects have led to a situation where users
are not able to associate a standard / uniform experience across national highway. However, the
Indian Roads Congress (IRC) & it’s Manual of Specifications and Standards attempts to ensure
consistency in specifications and designs across the network which can be presented as below:

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Table -1: Typical width of carriageway
Description Typical Width of carriageway (in meter)
Single Lane 3.75
Intermediate 5.5
Double Lane or more Multiple of 3.5m/lane
Paved Shoulders 1.5 / shoulder
Source : “Losing the way on highways” By Bibek Debroy & Kishore Desai, DNA January 10th, 2017

Table -2: Lane – Wise – Break – Up on NH

Description Single Lane Intermediate Lane 2 Lanes 4 Lanes >4 Lanes

in Kms. 13387 7314 55603 22534 2173
in % 13.25 7.24 55.05 22.31 2.15
Source : “Losing the way on highways” By Bibek Debroy & Kishore Desai, DNA January 10 , 2017
th

Table – 3: Revisions since 2007

Year Type Description

2007 Two lane Paved shoulders
Road side drainages, toll plazas (if tolled) structures (under bridges,
flyovers & over bridges wherever needed) wayside amenities (truck by –
2009 Four lane
lays, bus bays, tariff & medical aid posts) traffic control & road safety
works (signs, reflective markers etc.
2013 Six lane Inter-state logistic linkages facilitating expansion and higher budgets
2015 Six lane Further revision & expansion
Source : “Losing the way on highways” By Bibek Debroy & Kishore Desai, DNA January 10th, 2017

The intent under the above mentioned revisions was to standardize the planning, design and
other facilities-road side drainages, flyovers and over bridges, traffic control and road safety
works, toll plazas etc., across the highway network. There is one caveat, though the manuals are
largely applicable for projects implemented through the PPP mode. Guidelines prescribed under
these manuals become part of every Concession Agreement, Government signs with private
parties. However, across the country a mix of highways developed through PPP and other non
PPP modes. Various state governments have tweaked the definitions and implemented the road
network to suit their political ambitions within their respective states. It is possible that the
standard manuals are not strictly applied to NH projects developed through non PPP modes.
This possibly explains why we are not able to associate some kind of a ‘threshold ‘driving
experience across NH networks.

III. Main Findings -Agra – Lucknow Expressway

Agra –Lucknow Expressway of a length of 302 Km which has been completed in a record time
of 23 months stands out as a testimony of PPP in 2016. Its significant features are presented in
NTCP framework as follows:

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Novelty
The entire expressway is planned and built with metal beam crash barrier on both sides and wire
fencing, State of the art advance traffic management system for safe and secure transit of
vehicles. A dedicated 3 km stretch has been built for war-like emergencies on expressway to
allow landing facilities for fighter jets. The Expressway is a mix of development centers,
agricultural mandis/markets, schools, Industrial Training Institutes (ITI), rest houses, petrol
pumps, service centers and other public amenities and stands out as novelty parameter. Other
similar projects do not have a unified plan.

Type Concrete Paved

Length 165.537 Km

Right of Way (ROW) 100 m

Number of Lanes 6 Lanes (extendable to 8)

Lane Width 3.75m each

Top Width of 47.60 Mtr. (including 6.0 Mtr. wide

Embankment Median)

Height of Embankment 1.50 to 7.0 Mtr. (varying)

Technology
Major raw materials Principal Quantities consumed

Earthwork including Fly Ash 411.1 Lac Cum

Concrete 33.2 Lac Cum

Cement 12.0 Lac Tonnes

Steel 1.30 Lac Tonnes

Stone Aggregate 130 Lac Tonnes

Admixtures 12,500 tonnes

Bitumen 7,500 tonnes

Landscaping:

Shrubs Planted 5 Lac (approx.)

Trees Planted 5 Lac (approx.)

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Landscaping:

Grass Turfing 62.70 Lac Sq.Mtr.

Speed

Speed Limit for LMV 100 Km/Hr

Speed Limit for HMV 60 Km/Hr

Source : Web References op.cit

Complexity – Varied Structures:

The Agra – Lucknow expressway would have automatic traffic management systems and aims at
reducing road accidents . The six lane expressway is expandable to 8 lanes to avoid traffic
congestion and bottlenecks and it has already an 8 lane bridge across river Ganga connecting
Kannauj & Unnao. The expressway spans 10 districts, 236 villages and 3500 hectares of land. It
connects Agra and Lucknow via Shikohabad, Firozabad, Manipuri, Etawah, Auraiya, Kannauj,
Kanpur Nagar, and Unnao & Hardoi. The expressway passes through 4 national highways, 2
state highways and 5 rivers (Ganga, Yamuna, Isdan, Sai & Kalyani).

Structures Nos.

Rail Bridges 4

Major bridges 13

Minor Bridge 57

Culvert 183

Flyovers 9

Pedestrian Underpasses 148

Interchange 6

Main Toll Plaza 3

Ramp Plaza 8

Vehicular Underpass 74

Cart Track Crossing 76

Source : Web References op.cit

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Pace
As against the time of 36 months originally estimated, the expressway has been built in a record
time of 23 months by Uttar Pradesh Expressways Industrial Development Authority
(UPEIDA).The UP Government chose different builders for different stretches of the highway.
The state government took it up as an EPC project, funding it from the exchequer. The
companies involved in the construction included Afcons, Larsen & Toubro, NCC, and PNC
Infratech. Significantly, the 7,500 acres of land needed for the project was acquired from nearly
30,000 farmers without any hurdles. Uttar Pradesh Chief Minister Akhilesh Yadav's dream-
project -Agra-Lucknow Expressway, equipped with landing and take-off facilities for IAF fighter
jets, was inaugurated on November 25th 2016 on the eve of SP supremo Mulayam Singh Yadav's
birthday .Despite tall claims by Government of UP, Agra-Lucknow Expressway still unfit for
commuters. Agra-Lucknow Expressway, which is the country's longest expressway, is far from
being completed, but those users eager to take a ride on this newest and longest expressway of
the country had to wait till December 2016 as there are several stretches of the expressway that
still need to be finished.

Source : Web References op.cit

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Source : Web References op.cit

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Benefits of Agra – Lucknow Expressway
This will help the requisite connectivity to the national capital of Delhi and other NCR areas
like NOIDA. Another express highway from Lucknow to Balia shall be developed on the similar
mode which will ease the traffic congestion and shorten the travel time Balia to New Delhi
significantly. The Expressway ensures the development of nearby areas, provide a fast –moving
corridor that allows seamless travel, reduce the carbon footprint of vehicles that travel between
the two cities and attract investors in the state.

During its course of construction, the project scripted employment in distant villages and remote
hamlets. This region is known for high dairy, potato, fruits and food grain production. Samsung
will invest Rs 1,970 crore over the next three years to double manufacturing capacity of its
Noida facility, a move that will help the Korean company start exporting from India and
benefitting employment to more than 2,200 persons .Other leading industries are expected to
follow. Upon completion of the expressway, the project would have high agglomeration effects
and benefit the population in a multi dimensional ways.

The Expressway would facilitate development of the IT City which is part of the mega City
project envisioned by the UP Government. The IT city also includes IIT (50 acres), medicity
(100 acres), super specialty hospital/cardiology centre (20 acres), UP Administrative Academy
(25 acres), diary processing plant (20 acres), dairy development (5 acres), CSI Tower (5 acres),
cultural school (10 acres) and modern township over 511 acres. The IT City has been envisaged
on the lines of similar hubs in Hyderabad and Bangalore to serve as a knowledge hub, both for
development and training apart from housing residential complexes. It would comprise skill
development centre spanning over 10 acres, and churn out 5,000 students per year. Smaller IT
Parks spanning 10 acres have also been proposed in Lucknow, Meerut, Kanpur and Agra in
association with the Software Technology Parks of India (STPI).

Source : Web References op.cit

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The expressway also facilitates another independent rail project Lucknow Metro, which would
boost the connectivity within the city, will be a driving force for the growth real estate corridors
alongside and will also ensure that the city embraces a far more effective and dependable means
of public transport. The Metro rail project encourages commercial space along with residential
development.
Finances
Though the expressway was originally estimated to cost around Rs.15, 000 Crore it was
completed in Rs.13, 200 Crore , saving large funds to U P Government . The project would
raise revenue from charging tolls from users of expressway .Toll will be charged at three points
- at 38 km (24 mi), 95 km (59 mi) and 150 km (93.2 mi) from Greater Noida. Cars and jeeps will
be charged Rs 2.10 /km (1.30 /mi) and mini-buses Rs 3.23 /km (2.01 /mi) as toll. Buses and
Trucks will pay Rs. 6.60 /km (4.10 /mi). Charges for heavy vehicles will be Rs. 10.10 /km (6.276
/mi). Round trip charges are 1.6 times the one way toll within 24 hours. Special discounts for
vehicles using the expressway more than 19 times in a month. A summary table of toll rates is
given below:
Vehicle Category Till Tappal Exit Till Mathura Exit Till Agra Exit For Round Trip
Two wheeler 50 115 175 280
Car/Jeep/Van 105 240 410 665
LCV/Mini-Bus 165 375 565 905
Bus/Truck 335 765 1150 1840
Multi-axle Vehicle 515 1175 1765 2825
7+ axle Vehicle 660 1500 2250 3600

Note: All figures in Indian Rupees.

Source : Web References op.cit

A Diamond Approach for Construction Projects:

Based on the detailed discussion, we attempt a NTCP model for typical construction project as
follows:

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Conclusion -Key reflections

 Conventional Project Management models are based on project’s time, budget and
performance indicators and these models assume that all projects follow a stereotyped set
of rules and processes. Recent experience of several infrastructure projects in the
economy has demonstrated that the traditional project management styles and exercises
undertaken often fail, leading to delays in time and heavy and wasteful expenditure.
 Hon’ble Minister of Finance Shri Arun Jaitley has emphasized a vital role for Public
Private Partnership (PPP) for development of infrastructure projects and kick start the
stalled large infrastructure projects in the Budget speech made on February 29, 2016. Our
discussion has indicated the weaknesses of the conventional project evaluation models
and has called for adoption of alternate model of Project Evaluation which would be
more flexible, adaptive and dynamic. Our study supports the recommendation of Vijay
Kelkar’s Panel.
 The Diamond framework offers a disciplined technique for assessing a project’s benefits,
costs and risks and adopting the appropriate management path. It also provides
opportunities for assessing a project at mid course and suggesting directions for bringing
a troubled project back on track. The Diamond model incorporating the NTCP
dimensions to distinguish among a variety of infrastructure projects undertaken either by
Government or Public Private Partnership enterprises.
 The implementation of Lucknow Agra Expressway as discussed, calls for adopting a
multi dimensional approach - Diamond Model incorporating the NTCP elements as
brought out in our research paper. Such an approach helps in reduction of time, scope and
cost overruns significantly and benefitted in overcoming implementation bottlenecks and
procedural lapses. The foregoing detailed studies suggest key challenges and action paths
which could be followed by executives /administrators from Government/ Public Sector
Undertakings, Banks /financial institutions and researchers.

Abbreviations:
BOLT – Build Operate Lease Transfer
BOT – Build Operate Transfer
BOOT – Build Own Operate Transfer
EPC – Engineering Project Construction
O& M – Operation & Maintenance
PPP - Public Private Partnership
SPV – Special Purpose Vehicle

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