This exhaustive report provides a detailed analysis of the criteria required for roads and expressways to be considered in “good condition” for toll collection, as well as conditions under which toll collection is prohibited, based on Indian Roads Congress (IRC) and Ministry of Road Transport and Highways (MORTH) specifications, including IRC:SP:84-2019, IRC:SP:99-2013, and other relevant guidelines. It incorporates specific metrics such as International Roughness Index (IRI) exceeding 25%, pothole counts, and factors affecting riding quality and user comfort. Additionally, the report integrates international best practices from organizations like the American Association of State Highway and Transportation Officials (AASHTO) and the World Road Association (PIARC), providing a global perspective on toll road management. The report includes references, examples, case studies, and practical insights to ensure a thorough understanding.
Table of Contents
1. Introduction
Toll collection on roads and expressways in India is a critical component of infrastructure financing, particularly for projects under Public-Private Partnership (PPP) models. The National Highways Authority of India (NHAI), MORTH, and IRC establish stringent standards to ensure that tolls are levied only when roads meet quality, safety, and user comfort requirements. Documents such as IRC:SP:84-2019 (Manual of Specifications and Standards for Four Laning of Highways), IRC:SP:99-2013 (Manual of Specifications and Standards for Expressways), IRC:SP:83-2018 (Guidelines for Maintenance of Roads), and MORTH Specifications for Road and Bridge Works provide the framework for these standards. Internationally, organizations like AASHTO and PIARC offer best practices that enhance road quality and user satisfaction, serving as benchmarks for India.
This report aims to:
- Define the criteria for roads and expressways to be in “good condition” for toll collection, focusing on pavement quality, safety, amenities, and user comfort.
- Detail conditions prohibiting toll collection, including excessive IRI, potholes, and other defects.
- Incorporate international best practices to provide a comparative perspective.
- Present case studies and examples to illustrate practical applications.
The report is structured into the following sections:
- Criteria for Roads/Expressways in Good Condition for Toll Collection
- Conditions Prohibiting Toll Collection
- International Best Practices for Toll Road Management
- Case Studies and Practical Insights
- Technological Interventions for Road Maintenance
- Conclusion and Recommendations
2. Criteria for Roads/Expressways in Good Condition for Toll Collection
For a road or expressway to qualify for toll collection, it must adhere to rigorous standards outlined in IRC and MORTH guidelines, ensuring safety, durability, and user comfort. These criteria cover geometric design, pavement quality, safety features, toll plaza efficiency, user amenities, maintenance, and environmental considerations.
2.1 Geometric Design Standards
The geometric design of a road or expressway significantly impacts safety and riding comfort, forming the foundation for toll eligibility.
2.1.1 Alignment and Cross-Section
- Alignment: Roads must have smooth alignments with large-radius horizontal curves and spiral transitions to minimize driver discomfort and ensure safe navigation at design speeds (IRC:SP:99-2013, Section 2.9). For expressways, the design speed is typically 100–120 km/h, requiring fluent alignment with the topography.
- Cross-Section: IRC:SP:84-2019 specifies a minimum carriageway width of 7m per direction for four-lane highways, with paved shoulders of 1.5–2m and a median of 4–12m, depending on terrain and traffic volume. Expressways require wider medians (up to 15m) to accommodate high-speed traffic (IRC:SP:99-2013, Section 2.3).
- Example: The Delhi-Mumbai Expressway, designed as per IRC:SP:99-2013, features a 12m median and 2m paved shoulders, ensuring safe and comfortable travel.
2.1.2 Crossfall and Drainage
- Crossfall: A crossfall of 2.5% for paved surfaces and 3.5% for earthen shoulders ensures effective surface drainage, preventing water accumulation that could degrade pavement quality (IRC:SP:84-2019, Section 4.2).
- Drainage Systems: Functional median, surface, and subsurface drainage systems are critical to prevent waterlogging and pavement damage. Longitudinal drains and cross-drainage structures must be maintained to handle peak rainfall (IRC:SP:99-2013, Section 4.3).
- Example: The Eastern Peripheral Expressway incorporates lined longitudinal drains and cross-drainage structures, maintaining pavement integrity and supporting toll collection.
2.1.3 Superelevation
- Superelevation Standards: Superelevation on curves is limited to 7% for expressways and 10% for highways to ensure safe high-speed travel (IRC:SP:99-2013, Section 2.9.2.2). Proper superelevation enhances riding comfort and reduces the risk of skidding.
- Example: The Yamuna Expressway maintains superelevation within 7%, ensuring smooth navigation through curves, justifying toll collection.
2.2 Pavement Quality and Riding Comfort
Pavement quality directly affects riding quality and user comfort, making it a critical criterion for toll collection.
2.2.1 Pavement Type and Durability
- Pavement Design: Pavements must be designed for durability using flexible (bituminous) or rigid (concrete) materials, as per IRC:SP:84-2019, Section 5, and MORTH Specifications, Section 500. The design must account for traffic loads, environmental conditions, and a minimum lifespan of 15–20 years.
- Material Quality: High-quality materials, tested as per IRC:SP:47-1998 (Guidelines on Quality Systems for Road Bridges), must be used to prevent premature deterioration.
- Example: The Ahmedabad-Vadodara Expressway uses a rigid concrete pavement, designed for heavy traffic and durability, meeting toll collection standards.
2.2.2 International Roughness Index (IRI)
- IRI Standards: The IRI, a measure of pavement smoothness, must be maintained below 2.5 m/km for expressways and 3.0 m/km for highways to ensure riding comfort (IRC:SP:84-2019, Section 5; MORTH Specifications, Section 902). Regular profilometer surveys are required to monitor IRI.
- IRI Threshold for Maintenance: An IRI increase of more than 25% above the baseline (e.g., from 2.0 to 2.5 m/km or higher) indicates significant deterioration, requiring immediate maintenance to sustain toll eligibility (IRC:SP:83-2018, Section 4).
- Example: The Bengaluru-Mysuru Expressway maintains an IRI of 2.2 m/km, ensuring a smooth ride and justifying toll collection.
2.2.3 Potholes and Surface Defects
- Pothole Limits: As per IRC:SP:83-2018, the presence of more than 1 pothole per kilometer (diameter > 300 mm, depth > 50 mm) or extensive cracking (>5% of surface area) renders the road ineligible for toll collection until repaired.
- Rutting and Cracking: Rutting deeper than 10 mm or cracking affecting more than 5% of the surface compromises riding quality, prohibiting toll collection (IRC:SP:84-2019, Section 5.4).
- Example: The NH-48 section near Surat underwent repairs in 2022 to address potholes and rutting, restoring toll eligibility.
2.2.4 Skid Resistance
- Skid Resistance Standards: The pavement must maintain a minimum friction coefficient of 0.35 in wet conditions to ensure safety and comfort (IRC:SP:84-2019, Section 5.5). Regular testing using devices like the British Pendulum Tester is recommended.
- Example: The Chennai-Bengaluru Expressway maintains a friction coefficient of 0.4, ensuring safe driving conditions and toll collection.
2.2.5 Quality Assurance
- Testing and Compliance: A Quality Assurance Plan (QAP) must be implemented, with regular testing of materials and workmanship as per IRC:SP:47-1998 and IRC:SP:57-2000. Non-compliance leads to suspension of toll collection.
- Example: The Eastern Peripheral Expressway uses automated quality control systems to ensure pavement compliance, supporting continuous toll collection.
2.3 Safety Features
Safety features are essential for user protection and comfort, directly influencing toll eligibility.
2.3.1 Road Signs and Markings
- Road Signs: Signs must comply with IRC:67-2012, providing clear directions, warnings, and information. Reflective signs are mandatory for night-time visibility (IRC:SP:84-2019, Section 7.1).
- Road Markings: Lane lines, edge lines, and pedestrian crossings must be reflective and well-maintained, using thermoplastic paint or retro-reflective materials (IRC:SP:84-2019, Section 7.2).
- Example: The Yamuna Expressway features high-visibility road signs and markings, meeting IRC standards and supporting toll collection.
2.3.2 Crash Barriers
- Barrier Design: Rigid, semi-rigid, or flexible crash barriers must be installed at medians, bridges, and sharp curves to prevent accidents (IRC:SP:99-2013, Section 4.2).
- Maintenance: Barriers must be inspected and repaired regularly to ensure functionality (IRC:SP:84-2019, Section 7.3).
- Example: The Delhi-Meerut Expressway uses W-beam metal crash barriers, enhancing safety and justifying tolls.
2.3.3 Lighting
- Lighting Standards: Adequate lighting at toll plazas, interchanges, tunnels, and urban sections is mandatory for night-time safety (IRC:SP:99-2013, Section 5.2). LED lights with a minimum illuminance of 30 lux are recommended.
- Example: The Mumbai-Pune Expressway features well-lit toll plazas, ensuring safe night-time travel and toll eligibility.
2.3.4 Emergency Facilities
- Emergency Infrastructure: SOS booths, first-aid stations, and 24/7 helplines must be operational every 50 km (IRC:SP:84-2019, Section 6.3).
- Example: The NH-48 near Jaipur has functional SOS booths and emergency response teams, meeting IRC standards.
2.4 Toll Plaza and User Amenities
Efficient toll plazas and user amenities enhance the travel experience, supporting toll collection.
2.4.1 Toll Plaza Design and Efficiency
- Design Standards: Toll plazas must minimize congestion with sufficient lanes (minimum 2 per direction) and Electronic Toll Collection (ETC) systems like FASTag (IRC:SP:84-2019, Section 6.1). A service time of less than 10 seconds per vehicle is recommended.
- ETC Compliance: At least 50% of lanes must be dedicated to ETC to reduce waiting times (NHAI guidelines).
- Example: The NH-48 toll plaza near Gurugram uses FASTag lanes, achieving a service time of 8 seconds per vehicle.
2.4.2 Service Areas
- Amenity Standards: Service areas every 50–100 km must include fuel stations, eateries, restrooms, and parking, maintained in clean and functional condition (IRC:SP:99-2013, Section 5.3).
- Accessibility: Facilities must be accessible to all users, including those with disabilities, with shaded waiting areas and 24/7 operations (IRC:SP:84-2019, Section 6.2).
- Example: The Bengaluru-Mysuru Expressway has service areas every 60 km with clean restrooms and food courts, supporting toll collection.
2.4.3 User Comfort
- Comfort Features: Shaded waiting areas, clean drinking water, and reliable emergency services enhance user comfort, justifying tolls (IRC:SP:99-2013, Section 5.4).
- Example: The Eastern Peripheral Expressway provides air-conditioned rest areas, improving user satisfaction.
2.5 Maintenance Standards
Regular maintenance ensures sustained road quality, critical for toll eligibility.
2.5.1 Routine Maintenance
- Maintenance Activities: Routine repairs of potholes, cracks, and surface defects must be conducted promptly to maintain riding quality (MORTH Specifications, Section 900).
- Frequency: Inspections every 3 months and immediate repairs for defects like potholes or rutting (IRC:SP:83-2018, Section 4).
- Example: The Ahmedabad-Vadodara Expressway conducts monthly inspections, ensuring no potholes and maintaining toll eligibility.
2.5.2 Periodic Maintenance
- Overlay Schedules: Bituminous overlays every 5–7 years or concrete repairs every 10–15 years, depending on traffic volume, maintain pavement integrity (IRC:SP:84-2019, Section 9.2).
- Example: The NH-44 section near Chennai underwent a bituminous overlay in 2023, restoring IRI to 2.3 m/km.
2.5.3 Road Condition Monitoring
- Technologies: Tools like RoadVision AI and laser profilometers monitor IRI, potholes, and cracking, enabling proactive maintenance (Web ID: 5, 21).
- Example: The Eastern Peripheral Expressway uses AI-based monitoring to detect defects, ensuring continuous toll collection.
2.6 Environmental and Drainage Considerations
Environmental compliance and effective drainage are essential for road longevity and toll eligibility.
2.6.1 Drainage Systems
- Design Standards: Surface, median, and subsurface drainage systems must handle peak rainfall, preventing pavement damage (IRC:SP:84-2019, Section 4.3).
- Maintenance: Drains must be cleaned regularly to prevent blockages (IRC:SP:83-2018, Section 4.2).
- Example: The Delhi-Mumbai Expressway features lined drains, maintaining pavement quality during monsoons.
2.6.2 Environmental Compliance
- Erosion Control: Measures like turfing and retaining walls prevent soil erosion (IRC:SP:84-2019, Section 10.1).
- Noise and Pollution: Noise barriers and green belts reduce environmental impact (IRC:SP:99-2013, Section 10.2).
- Example: The Eastern Peripheral Expressway uses noise barriers near urban areas, meeting environmental standards.
3. Conditions Prohibiting Toll Collection
Toll collection is prohibited when roads fail to meet quality, safety, or user comfort standards, or under exceptional circumstances. These conditions are based on IRC, MORTH, and NHAI guidelines, with specific thresholds for IRI, potholes, and other defects.
3.1 Poor Road Condition
Poor road conditions directly impact safety and comfort, leading to toll suspension.
3.1.1 Excessive IRI
- Threshold: An IRI increase of more than 25% above the baseline (e.g., IRI > 3.125 m/km for a baseline of 2.5 m/km) indicates significant deterioration, prohibiting toll collection until repairs restore the IRI (MORTH Specifications, Section 902; IRC:SP:83-2018, Section 4.1).
- Measurement: IRI must be measured using inertial profilers at least twice a year (IRC:SP:83-2018, Section 4.3).
- Example: In 2023, a section of NH-44 in Tamil Nadu had an IRI of 4.5 m/km, leading to toll suspension until repairs reduced it to 2.8 m/km.
3.1.2 Potholes
- Threshold: More than 1 pothole per kilometer (diameter > 300 mm, depth > 50 mm) renders the road ineligible for toll collection (IRC:SP:83-2018, Section 4.2).
- Repair Timeline: Potholes must be repaired within 48 hours of detection (MORTH Specifications, Section 903).
- Example: In 2022, NH-8 in Gujarat saw toll suspension due to 3 potholes per kilometer, restored after emergency repairs.
3.1.3 Rutting and Cracking
- Threshold: Rutting deeper than 10 mm or cracking affecting more than 5% of the surface compromises riding quality, prohibiting toll collection (IRC:SP:84-2019, Section 5.4).
- Example: A section of NH-27 in Uttar Pradesh faced toll suspension in 2021 due to 12 mm rutting, resolved through resurfacing.
3.1.4 Inadequate Skid Resistance
- Threshold: A friction coefficient below 0.35 in wet conditions poses safety risks, prohibiting toll collection (IRC:SP:84-2019, Section 5.5).
- Example: The NH-48 near Surat suspended tolls in 2023 due to a friction coefficient of 0.30, restored after surface treatment.
3.2 Incomplete Construction or Upgradation
Incomplete infrastructure fails to meet user expectations, prohibiting toll collection.
3.2.1 Partial Completion
- Requirement: All lanes, service roads, and safety features must be fully constructed as per IRC:SP:84-2019, Section 1.2.
- Example: The Delhi-Meerut Expressway delayed toll collection in 2020 due to incomplete service roads.
3.2.2 Non-Compliance with Standards
- Requirement: Failure to meet IRC/MORTH standards for pavement, safety, or amenities prohibits toll collection (IRC:SP:99-2013, Section 1.8).
- Example: A section of NH-45 in Tamil Nadu faced toll suspension in 2019 due to non-compliant pavement quality.
3.3 Safety Hazards
Safety deficiencies pose risks to users, leading to toll suspension.
3.3.1 Missing or Damaged Safety Features
- Requirement: All road signs, markings, and crash barriers must be functional (IRC:SP:84-2019, Section 7).
- Example: NH-8 in Gujarat halted tolls in 2022 due to missing road signs.
3.3.2 Inadequate Lighting
- Requirement: Lighting at toll plazas and interchanges must maintain a minimum illuminance of 30 lux (IRC:SP:99-2013, Section 5.2).
- Example: A toll plaza on NH-27 in Rajasthan suspended tolls in 2021 due to non-functional lighting.
3.4 Non-Functional Toll Plazas or Amenities
Inefficient toll plazas or lack of amenities disrupt user experience, prohibiting toll collection.
3.4.1 Toll Plaza Congestion
- Threshold: Waiting times exceeding 10 minutes or non-functional ETC systems lead to toll suspension (IRC:SP:84-2019, Section 6.1).
- Example: A toll plaza on NH-27 in Uttar Pradesh faced suspension in 2021 due to long queues.
3.4.2 Lack of Amenities
- Requirement: Service areas must be operational with clean facilities (IRC:SP:99-2013, Section 5.3).
- Example: NH-44 in Karnataka suspended tolls in 2022 due to non-functional rest areas.
3.5 Exceptional Circumstances
External factors may necessitate toll waivers.
3.5.1 Natural Disasters
- Condition: Floods, landslides, or other events rendering the road unsafe prohibit toll collection (NHAI guidelines).
- Example: Toll collection was waived on NH-44 during 2020 floods in Andhra Pradesh.
3.5.2 Public Interest Exemptions
- Condition: Toll waivers may apply during emergencies or for specific vehicle categories (National Highways Fee Rules, 2008).
- Example: Toll exemptions were granted for ambulances during the 2020 COVID-19 lockdown.
3.6 Legal or Contractual Violations
Legal or contractual issues can halt toll collection.
3.6.1 Concession Agreement Breaches
- Condition: Failure to meet PPP agreement obligations, such as maintenance, prohibits toll collection (IRC:SP:84-2019, Section 1).
- Example: NH-45 in Tamil Nadu faced toll suspension in 2019 due to maintenance lapses.
3.6.2 Court Orders or Protests
- Condition: Legal rulings or public protests due to poor road conditions can halt tolls.
- Example: The Madras High Court ordered toll suspension on NH-45 in 2019 due to substandard conditions.
4. International Best Practices for Toll Road Management
International standards provide valuable insights for enhancing toll road management in India.
4.1 Pavement Quality and Riding Comfort
4.1.1 IRI Standards
- AASHTO: Recommends an IRI below 2.7 m/km for high-speed roads and 1.5 m/km for premium toll roads. A 25% IRI increase triggers maintenance (AASHTO M 328).
- Example: The Pennsylvania Turnpike maintains an IRI below 1.5 m/km, ensuring premium riding quality.
4.1.2 Pothole Limits
- PIARC: Recommends no more than 0.5 potholes per kilometer, with repairs within 24 hours for potholes exceeding 200 mm in diameter or 40 mm in depth.
- Example: The M6 Toll Road in the UK enforces strict pothole repair schedules, maintaining zero potholes.
4.1.3 Skid Resistance
- European Standards: The European Norm (EN 13036-1) mandates a minimum friction coefficient of 0.4 for toll roads in wet conditions.
- Example: Italy’s Autostrade network maintains a friction coefficient of 0.45, ensuring safety.
4.2 Maintenance and Monitoring
4.2.1 Proactive Maintenance
- AASHTO: Emphasizes predictive maintenance using laser profilometers and Ground Penetrating Radar (GPR) to monitor pavement conditions.
- Example: The New Jersey Turnpike uses GPR to detect subsurface defects, preventing toll suspension.
4.2.2 Digital Twins
- PIARC: Advocates for digital twin technology to model road conditions in real-time, enabling early defect detection.
- Example: Australia’s EastLink toll road uses digital twins to maintain an IRI below 2.0 m/km.
4.3 Safety and User Amenities
4.3.1 Safety Audits
- PIARC: Requires comprehensive safety audits before toll collection, ensuring functional signs, barriers, and lighting.
- Example: The M6 Toll Road conducts annual safety audits, maintaining toll eligibility.
4.3.2 User Amenities
- European Toll Roads: Provide service areas every 30–50 km with EV charging stations, accessible restrooms, and 24/7 facilities.
- Example: Spain’s AP-7 toll road offers service areas every 40 km, enhancing user comfort.
4.4 Transparency and Accountability
4.4.1 Public Reporting
- AASHTO: Recommends public disclosure of road condition metrics (e.g., IRI, pothole counts) to justify tolls.
- Example: The Pennsylvania Turnpike Commission publishes annual reports, suspending tolls for IRI > 3.0 m/km.
4.4.2 Toll Suspension Policies
- PIARC: Suggests automatic toll suspension for non-compliance with maintenance standards, with clear repair timelines.
- Example: Canada’s Highway 407 suspends tolls for sections with potholes until repairs are completed.
5. Case Studies and Practical Insights
5.1 Case Study: Bengaluru-Mysuru Expressway (India)
- Good Condition: Completed in 2023, this expressway maintains an IRI of 2.2 m/km, zero potholes, and functional safety features, meeting IRC:SP:99-2013 standards.
- Challenges: Initial delays in service road completion led to protests, delaying toll collection. After resolution, tolls were reinstated with FASTag-enabled plazas.
- Lesson: Timely completion of all infrastructure components is critical for toll eligibility.
5.2 Case Study: NH-44 in Tamil Nadu (India)
- Toll Suspension: In 2023, heavy rainfall caused an IRI of 4.5 m/km and 3 potholes per kilometer, leading to toll suspension.
- Resolution: AI-based monitoring (RoadVision) expedited repairs, restoring toll collection.
- Lesson: Advanced monitoring technologies can minimize toll suspension periods.
5.3 Case Study: M6 Toll Road (UK)
- International Benchmark: Maintains an IRI below 1.5 m/km, zero potholes, and high-quality amenities every 40 km. Regular safety audits ensure continuous toll eligibility.
- Lesson for India: Stricter IRI and pothole limits could enhance user satisfaction.
5.4 Case Study: EastLink Toll Road (Australia)
- International Benchmark: Uses digital twins and laser profilometers to maintain an IRI below 2.0 m/km, ensuring premium riding quality.
- Lesson for India: Adopting digital twins could improve maintenance efficiency.
6. Technological Interventions for Road Maintenance
6.1 RoadVision AI
- Application: Used on the Eastern Peripheral Expressway, RoadVision AI detects potholes, cracks, and IRI deviations in real-time, ensuring compliance with IRC standards (Web ID: 5, 21).
- Benefit: Reduces maintenance delays, preventing toll suspension.
6.2 Laser Profilometers
- Application: Measures IRI with high precision, used on Australia’s EastLink and recommended by AASHTO.
- Benefit: Ensures accurate monitoring of riding quality.
6.3 Ground Penetrating Radar (GPR)
- Application: Detects subsurface defects, preventing pavement failure.
- Example: The New Jersey Turnpike uses GPR to maintain toll eligibility.
6.4 Digital Twins
- Application: Models road conditions in real-time, enabling predictive maintenance (PIARC recommendation).
- Example: Australia’s EastLink uses digital twins to optimize maintenance schedules.
7. Conclusion and Recommendations
Toll collection on Indian roads and expressways requires adherence to IRC and MORTH standards, ensuring high pavement quality (IRI < 2.5–3.0 m/km, no potholes), safety, and user amenities. Toll collection is prohibited when the IRI increases by more than 25%, potholes exceed 1 per kilometer, or other defects compromise safety and comfort. International best practices from AASHTO, PIARC, and European toll roads emphasize stricter IRI limits, proactive maintenance, and transparency. India can enhance toll road management by adopting technologies like digital twins and laser profilometers, implementing stricter pothole limits, and increasing public reporting of road conditions.
Recommendations:
- Adopt stricter IRI thresholds (e.g., 2.0 m/km for expressways) aligned with international standards.
- Implement digital twin technology for real-time road condition monitoring.
- Enforce pothole repair within 24 hours, following PIARC guidelines.
- Publish annual road condition reports to enhance transparency and user trust.
- Conduct regular safety audits to ensure compliance with IRC and international standards.
8. References
- IRC:SP:84-2019 – Manual of Specifications and Standards for Four Laning of Highways. Indian Roads Congress, 2019.
- IRC:SP:99-2013 – Manual of Specifications and Standards for Expressways. Indian Roads Congress, 2013.
- IRC:SP:83-2018 – Guidelines for Maintenance of Roads. Indian Roads Congress, 2018.
- MORTH Specifications for Road and Bridge Works (Fifth Revision). Ministry of Road Transport and Highways, Government of India.
- IRC:67-2012 – Code of Practice for Road Signs. Indian Roads Congress, 2012.
- IRC:SP:47-1998 – Guidelines on Quality Systems for Road Bridges. Indian Roads Congress, 1998.
- IRC:SP:57-2000 – Guidelines for Quality Systems for Road Construction. Indian Roads Congress, 2000.
- National Highways Fee (Determination of Rates and Collection) Rules, 2008, NHAI.
- AASHTO M 328 – Standard Specification for Inertial Profiler. American Association of State Highway and Transportation Officials.
- PIARC Technical Committee Reports – Road Network Operations & Maintenance. World Road Association, 2020.
- EN 13036-1 – Road and Airfield Surface Characteristics. European Committee for Standardization.
- RoadVision AI, “Transforming Road Infrastructure Management with Digital Twins and AI Technologies.”
