TOWARDS A COMPREHENSIVE FRAMEWORK FOR PUBLIC TRANSPORT SYSTEM PLANNING IN INDIA

THE CONTEXT: India’s rapid urbanization, with metropolitan cities projected to increase from 53 in 2011 to 65 by 2024, has led to significant challenges in urban transportation. The surge in urban population, expected to reach 590 million by 2031, and a rise in private vehicle ownership—295.8 million registered motor vehicles in 2019—have exacerbated issues such as traffic congestion, road accidents, and environmental degradation in cities nationwide.

POLICY EVOLUTION AND GUIDELINES IN URBAN TRANSPORTATION IN INDIA:

• • National Urban Transport Policy (NUTP) 2006: The NUTP aimed to ensure safe, affordable, quick, comfortable, reliable, and sustainable access for the growing urban population. Key objectives included:
    • Incorporating urban transportation as a critical parameter in urban planning.
    • Encouraging integrated land use and transport planning to minimize travel distances.
    • Improving access to markets and essential services.
    • Allocating road space equitably, prioritizing pedestrians and non-motorized transport.
  • MoHUA’s Toolkit and Guidelines for Comprehensive Mobility Plan (2008): This toolkit provided a structured approach for cities to develop comprehensive mobility plans considering all modes of transport. It emphasized stakeholder engagement and data-driven decision-making to enhance public transport systems.
  • 12th Five-Year Plan Working Group Report on Urban Transport (2012): This report highlighted the need for developing Bus Rapid Transit Systems (BRTS) and rail systems, particularly Metro Rail Transit (MRT), in cities with populations exceeding 4 million. It stressed conducting feasibility studies for cities with over 2 million residents to assess potential MRT options.
  • National Transport Development Policy Committee’s Report (2012): This report reinforced the necessity for a multimodal transport framework that integrates various transport modes. It advocated for MRT in linear cities with high demand while suggesting BRTS for corridors with significant passenger traffic.
  • Urban and Regional Development Plans Formulation and Implementation Guidelines (2014): These guidelines provided detailed criteria for selecting appropriate transport solutions based on demographic and geographic factors.
  • Metro Rail Policy (2017): This policy balanced the evaluation of MRT options based on social, economic, and environmental criteria. It also highlighted the importance of stakeholder input in decision-making processes.
  • Standard Specifications for Metro Neo and Metro Lite (2020): These specifications aimed to provide cost-effective alternatives for urban transit systems in Tier 2 and Tier 3 cities, focusing on integrating these systems with existing public transport networks.
  • Infravision Foundation Report (2023): This recent report proposed a comprehensive analysis of travel patterns to select appropriate public transport systems tailored to each city’s specific context.
    • Travel Patterns: The report emphasizes the need for a detailed analysis of travel patterns in Indian cities to select suitable public transport systems. This includes evaluating factors such as trip length distribution, the number of trips during peak hours, and road network characteristics alongside traditional metrics like peak hour peak direction traffic (PHPDT), population, and population density.

THE SHORTCOMINGS IN INDIA’S PUBLIC TRANSPORT SYSTEMS:

• • Fragmented Planning, Implementation, and Management: The urban transport governance in India is highly fragmented, involving multiple ministries, departments, and agencies at national, state, and municipal levels. This lack of centralized authority leads to:
    • Inefficient Service Delivery: The absence of a cohesive planning framework results in overlapping responsibilities and competing agendas among various stakeholders. As a result, critical planning principles such as land use integration and multimodal connectivity are often neglected.
    • Siloed Operations: Individual departments operate within defined roles without adequate collaboration. This hampers the ability to address complex urban transport challenges comprehensively. For instance, the Planning Commission identified this fragmentation over a decade ago, yet it remains unresolved.
    • Complex Approval Processes: The bureaucratic nature of project approvals leads to delays in infrastructure development. Due to challenges like land acquisition and regulatory hurdles, urban infrastructure projects can experience timelines extending from eight to 18 years.
  • Significant Time Lag Between Planning and Operation: The time taken to plan and operationalize metro projects exacerbates reliance on private vehicles:
    • Increased Dependence on Private Vehicles: As metro projects often take years to complete, commuters resort to private transportation options during the interim period. The total number of registered motor vehicles in India reached approximately 295.8 million by 2019, reflecting a CAGR of 9.91% from 2009. This surge in vehicle ownership contributes to traffic congestion and environmental degradation.
    • Failure to Meet Ridership Expectations: Many metro systems have not achieved the ridership levels projected in their Detailed Project Reports (DPR). For instance, cities like Bengaluru and Ahmedabad have reported ridership figures that fall significantly short of expectations, with some systems achieving less than 10% of their anticipated capacity.
  • Preference for MRT Over Improving Existing Bus-Based Transport: There is a notable preference among policymakers for investing in Metro Rail Transit (MRT) systems at the expense of enhancing existing bus networks:
    • Underutilization of Bus Systems: While MRT systems are often viewed as a solution to urban transport issues, data shows that bus ridership frequently surpasses metro systems in many cities. Bus services in cities like Lucknow and Kanpur demonstrate higher commuter volumes than metro services.
    • Neglecting Bus Services: Focusing on high-capacity rail systems has led to underinvestment in bus-based transit options. According to MoHUA standards, cities should maintain a minimum bus fleet size of 40-60 buses per lakh population; however, many cities fall short of this requirement.
  • Failure to Integrate Para-transit Services into Urban Transport Plans: Para-transit services play a crucial role in urban mobility but are often overlooked in formal transport planning:
    • Competition Rather Than Complementarity: In many Indian cities, para-transit services such as auto-rickshaws compete with formal public transport systems instead of complementing them. For instance, the modal share of para-transit services is about 25% of total motorized trips but can exceed public transport usage ninefold in smaller cities.
    • Regulatory Gaps: Current policies do not adequately address the operational needs of para-transit services or provide clear guidelines for their integration into urban transport plans. The lack of coordination among various government bodies further complicates effective policy implementation.

THE WAY FORWARD:

• • Approach Tailored to Each City’s Unique Context: Urban transportation planning must shift from a one-size-fits-all approach to a scenario-based framework considering each city’s unique socio-economic, geographic, and demographic characteristics.
    • Data-Driven Planning: Cities like Nashik have successfully utilized scenario-based modeling to forecast travel demand and plan transit systems that align with their growth trajectories. This approach can help cities like Tier 2 and Tier 3 urban centers avoid over-investment in high-cost modes like Metro Rail Transit (MRT) and focus on cost-effective solutions.
    • Urban Growth Projections: India’s urban population is expected to grow from 282 million in 2011 to 590 million by 2031, with metropolitan cities increasing from 53 in 2011 to 65 by 2024. This rapid urbanization demands tailored transport solutions based on local needs.
  • Prioritize Bus-Based Transit Systems Before Considering Higher-Cost Modes: Enhancing bus-based transit systems is critical due to their cost-effectiveness, flexibility, and ability to cater to immediate mobility needs. A kilometer of metro rail construction costs approximately ₹250–300 crore, while a BRT system costs only around ₹15–20 crore per kilometer, making buses a more feasible solution for most cities.
  • Integrate MRTS with Existing Public Transport Networks in Tier 2 and Tier 3 Cities: In Tier 2 and Tier 3 cities, where average trip lengths are shorter (typically under 5 km), enhancing bus services or introducing low-cost systems like Metro Neo or Metro Lite is often more effective than high-capacity MRT. Pune has focused on integrating its metro system with feeder bus routes, ensuring last-mile connectivity. This approach has improved accessibility while reducing dependence on private vehicles.
  • Consider Factors Beyond Population and Density: Traditional metrics like population density and Peak Hour Peak Direction Traffic (PHPDT) are insufficient for determining suitable transit modes. Other factors, such as trip time, cost, and user preferences, must also be considered. Studies show that commuters prioritize affordability over mode type. For example, while Delhi Metro offers high capacity, its fares remain unaffordable for many low-income users who rely on buses or para-transit options.
  • Develop Comprehensive Policy and Regulatory Frameworks: Para-transit services like auto-rickshaws play a crucial role in first-and-last-mile connectivity but lack proper integration into formal transport systems. Programs like the Logistics Sector Skill Council (LSC) offer internationally recognized training modules for drivers across various sectors, including para-transit services.

THE CONCLUSION:

India’s urban transportation requires a multi-pronged approach that prioritizes cost-effective solutions like bus-based systems while integrating advanced transit modes where necessary. By adopting tailored strategies based on local contexts, improving para-transit integration, enhancing driver professionalism, and implementing robust monitoring frameworks, Indian cities can transition toward sustainable urban mobility systems that efficiently cater to their growing populations.

UPSC PAST YEAR QUESTION:

Q.1 National urban transport policy emphasizes on moving people instead of moving vehicles. Discuss critically the success of various strategies of the government in this regard. 2014

MAINS PRACTICE QUESTION:

Q.1 Discuss the impact of urbanization on transportation systems in India and suggest measures to address these challenges.

SOURCE:

https://www.orfonline.org/research/towards-a-comprehensive-framework-for-public-transport-system-planning-in-india