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The Hyderabad Outer Ring Road (HORR) Project: A Case Analysis of the Project
and Its Success

Conference Paper · April 2018

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Paper included in the Proceedings of International Conference on Construction, Real estate,
Infrastructure and Project (ICRIP) Management 2017 held at NICMAR Pune on November 10-11,
2017 as a book entitled Urban Planning and Infrastructure Management published by NICMAR-Pune

The Hyderabad Outer Ring Road (HORR) Project:

A Case Analysis of the Project and Its Success

Ramakrishna Nallathiga

Associate Professor, School of Project, Real estate and Infrastructure Management, National
Institute of Construction Management and Research, Pune

Abstract

It is somewhat well laid down that the infrastructure development projects undertaken by
government agencies would require pooling large amount of technical, human and financial
resources. After 2006, the private sector has been looked upon to overcome the resource
constraints in the form of the Public-Private Partnership (PPP), which also leverages the
strengths of public sector. For quite some time now, the PPP has been considered as the way
forward mechanism to undertake the road infrastructure development projects in India.
However, as the PPP projects are developed technically no different from conventional
development projects, public authorities also point to the issues associated with PPP
mechanism in terms of higher costs of project development associated with procurement,
profit booked by private partner and potential costs of time-cost-quality issues. Yet, it is well
argued that private participation makes a significant difference when it comes to project
success in terms of different project dimensions.

This paper is an attempt to make an analysis of project success by performing a detailed case
study of Hyderabad Outer Ring Road (HORR) Project. The salient features of HORR project
are discussed in details in terms of project scope, structure, finance and implementation. The
case analysis reveals that the HORR project, in spite of its good conception on strategic and
technical grounds, met with implementation difficulties that affected project success, in terms
of the conventional measures of time, cost and quality. Yet, it is hoped that the HORR
project, with its broader concept of „Growth Corridor‟, would give rise to long term benefits
to Hyderabad metropolitan region that outweigh its costs. The paper concludes that urban
road development projects under the PPP model in India need careful conceptualisation,
detailing and implementation approach in order to become successful.

Key Words: Infrastructure development, Project Success, PPPs and Urban Road Project

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Paper included in the Proceedings of International Conference on Construction, Real estate,
Infrastructure and Project (ICRIP) Management 2017 held at NICMAR Pune on November 10-11,
2017 as a book entitled Urban Planning and Infrastructure Management published by NICMAR-Pune

1. Introduction

As India has been increasingly becoming urbanised in last few decades, large cities began
receiving disproportionately more population than small and medium cities (Kundu 2006).
Therefore, the share of urban population of large cities is on the rise and so also the demand
for infrastructure supporting the population and economic development. The availability of
good and efficient transportation system is essential for the movement of people and
economic goods in a city. This requires the creation of infrastructure that renders this
function and facilities that can be run on it (MGI 2010). Good city-wide infrastructure also
fosters trade and other linkages the city with region and promotes its development.

An important phenomenon associated with urbanisation in large cities is that the sub-urban
and peri-urban areas are growing more than central cities (Sivaramakrishnan and Kundu
2005). This is happening because the central city (or, urban core) is already very dense in
terms of population and traffic and it cannot accommodate much of incoming population.
Also, the peripheral areas (or, fringe areas) are a natural choice to incoming population as
they are closer to their home town/village. However, the various socio-economic and trade
ties between urban core and peripheral areas lead to the demand for transportation between
them as well as across/along the peripheral areas. Under such circumstances, urban ring roads
can provide connectivity and support running transportation services on them.

A ring road, orbital motorway, beltway, circumferential highway, or loop highway is a road
that encircles a city so as to streamline the inner-city traffic flow through better circulation
and connectivity between various nodes as well as by serving as a bye-pass for highway
traffic (Road Traffic Technology 2013). Ring roads are an important means of achieving
transport connectivity and higher traffic speeds, thereby, reducing environmental impacts
such as traffic congestion, air and noise pollution and better traffic circulation (Pharande
2015). Given the multiple benefits of such ring road projects, it is imperative for the cities to
develop them rather than wait for the clean-up of mess due to land development and traffic
growth. Realising the same, Indian cities began to undertake the development of ring roads –
some cities have begun early while some others are catching up.

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Paper included in the Proceedings of International Conference on Construction, Real estate,
Infrastructure and Project (ICRIP) Management 2017 held at NICMAR Pune on November 10-11,
2017 as a book entitled Urban Planning and Infrastructure Management published by NICMAR-Pune

However, in order to be effective, the ring road projects have to be taken up well ahead and
completed as fast as they can be, so that the project costs are minimised and project benefits
are reaped early. Most of the Indian cities have authorities for urban development and
management, which develop ring roads according to their master plan and timelines therein.
The development of ring road as a project, however, requires many skills apart from
administering works. This includes abilities to – conceptualise project and activities, raising
capital for development, scheduling project activities, coordinating with authorities,
supervising project implementation, adhering to timelines and costs, achieving quality and
specifications and so on. Concentrating on such a variety of tasks with may give huge
pressure on the urban authorities and may give rise to the risk of project not becoming
successful. Therefore, it is held that partnering with private sector may lead to better chances
of project success than otherwise. Whether this can be achieved in practice is left to empirics.

It is widely held that Public - Private Partnership (PPP) is the way forward for developing
road infrastructure projects, which require huge public funds apart from other requirements
mentioned above (Nallathiga and Shah 2014). Although PPPs leverage private sector
strengths so as to complete projects within budget and timelines, it is also argued that PPP
projects load on the costs of private engagement and have high finance costs, thereby
jeopardizing their adoption (Harris and Tadimalla 2008). It is also held that PPP projects are
good at keeping tabs on time but not costs (Rajan et al 2014). In India, several road sector
projects suffer from delays in project completion and cost escalation, to which urban road
projects may not be exception (Nallathiga and Shah 2014). It is reported that urban road
infrastructure projects are complex to feature overruns in time and cost (Agale et al 2015).

In this background, it is attempted in this paper to examine whether such PPPs deliver in the
case of urban infrastructure projects such as ring roads. Most of the literature on PPPs in
roads in Indian context is concerned with highways and large road development projects and
scant attention is paid to urban road projects. Therefore, Hyderabad Outer Ring Road
(HORR) project, a major urban ring road project in Hyderabad has been chosen for
performing a detailed case analysis, which is based on the secondary information available
from multiple sources. The next two sections perform narrative summary or description of
the case study project and then an analysis of the project success and shortcomings has been
made before drawing the conclusions.

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Paper included in the Proceedings of International Conference on Construction, Real estate,
Infrastructure and Project (ICRIP) Management 2017 held at NICMAR Pune on November 10-11,
2017 as a book entitled Urban Planning and Infrastructure Management published by NICMAR-Pune

2. Hyderabad Outer Ring Road: A Case Analysis

2.1 Introduction

The erstwhile Government of Andhra Pradesh (GoAP) had proposed improving some of the
major infrastructure facilities in the capital city –Hyderabad. One of them was the
construction of an orbital road linkage to decongest traffic flow on existing major arterial
roads. The Hyderabad Outer Ring Road (HORR) is an initiative in that direction, which
promoted by the Hyderabad Metropolitan Development Authority (HMDA). The HMDA
established the Hyderabad Growth Corridor Limited (HGCL) as a Special Purpose Vehicle
for the implementation of ORR project.

The HORR project is viewed as a „Growth Corridor‟, as the aim of it is to achieve the growth
as well as development of well planned and well connected urban settlements and satellite
townships around the central city in the Hyderabad Metropolitan Area (HMA). Some of the
salient features of the HORR development project include (HMDA 2012):

 The proposed road corridor was designed as 8 lane fully access controlled expressway
with 2 lane service roads on both sides (the link road connecting ORR is of 6 lanes).
 The RoW of 150 m (however in Phase-I, it is 125 m wide) with the main expressway
covering about 66 m and the balance for providing ramps at interchanges, service
roads wherever necessary, utility ducts, rail corridor, etc., based on requirement.
 A design speed of 120 kmph (Ruling) with 100 kmph absolute minimum speed that
gives minimum time for travel.
 No at-grade intersections and the provision of suitable interchanges like cloverleaf,
diamond type for National and State Highways and other important urban roads.

2.2 Project Location

The HORR is a road-cum-area development project, as it aims at the development of well-

planned and well-connected urban settlements around the HMA. The 162 km ring road links
the peri-urban areas Patancheru – Shamshabad – Hayathnagar – Medchal - Patancheru,
providing connectivity to various State Highways and National Highways so as to by-pass the

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Paper included in the Proceedings of International Conference on Construction, Real estate,
Infrastructure and Project (ICRIP) Management 2017 held at NICMAR Pune on November 10-11,
2017 as a book entitled Urban Planning and Infrastructure Management published by NICMAR-Pune

central city of Hyderabad. Further, to augment the traffic circulation, 33 radial roads were
proposed to be developed that connect the city to the ORR (Road Traffic Technology 2013).
The HORR would provide linkage/connectivity to newly established Hyderabad International
Airport located at Shamshabad, which is 35 km away from the city. Figure 4 shows a sketch
of the HORR alignment as depicted on the Draft Development Plan of HMA. While HMA is
the metropolitan area governed by the HMDA, the central city of Hyderabad is governed by
the Greater Hyderabad Municipal Corporation (GHMC).

Figure 4 Hyderabad ORR as shown in Regional Development Plan

Source: Based on HMDA (2012)

2.3 Project Importance

The HORR project is also a strategically important urban infrastructure project and, therefore,
the experience of it will serve as a guide for the successful completion of other upcoming
urban infrastructure projects. The Hyderabad ORR proposes to bring-in the following several
advantages to HMA (HMDA 2012):

 De-congestion of metropolitan area and inner ring road traffic

 Infrastructure to meet future traffic demand

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Paper included in the Proceedings of International Conference on Construction, Real estate,
Infrastructure and Project (ICRIP) Management 2017 held at NICMAR Pune on November 10-11,
2017 as a book entitled Urban Planning and Infrastructure Management published by NICMAR-Pune

 Provides orbital linkage to radial arterial roads

 Leads to the development of further satellite townships
 Provides linkage to the proposed MRTS and Bus system
 Provides faster access to the International Airport
 Connects urban nodes like Hi-tech city, Games village, IIIT, ISB, Hardware Park,
Singapore Township and Financial district
 Develops linkages with SEZs, industrial hubs and service hubs

2.4 Project Development

The HORR Project was proposed to be developed in two major Phases (Road Traffic 2013):

 Phase I covers the 22 Km road stretch between Gachibowli Junction and Shamshabad
NH-7 Junction, which was revised upwards to 24 Km. The four lane ring road under
Phase I was developed and opened for traffic in November 2008 and the remaining four
lanes were also completed and opened in July 2010. The PVNR Expressway connecting
the city to the Shamshabad international airport was also developed during this phase as a
radial road project connecting the HORR; it was opened for traffic in October 2009. This
phase of the project was developed using the conventional construction contracts. Table 2
shows the road stretches developed under the Phase I.
 Phase II covers the remaining 137 Km covering Narsingi-Kollur-Patancheru-Medchal-
Shameerpet-Turkayamzal-Shamshabad parts of Hyderabad. This development phase was
further sub-divided into Phase II-A and II-B, given the long length of road to be built.
This development phase was proposed to be developed under BOT-Annuity model of
PPP. The HGCL was created on December 26, 2005 as a Special Purpose Vehicle (SPV)
to develop and operate the HORR project under the India Companies Act, 1956. The
Phase II A and B were planned to be completed in 2010 and 2012 respectively, but they
are yet to be fully completed. Some stretches of them, however, have been opened for
traffic from 2012 onwards. Table 2 shows the road stretches developed under Phase II.

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Paper included in the Proceedings of International Conference on Construction, Real estate,
Infrastructure and Project (ICRIP) Management 2017 held at NICMAR Pune on November 10-11,
2017 as a book entitled Urban Planning and Infrastructure Management published by NICMAR-Pune

Table 2 HORR Project costs and finance

Development Road Length Road Stretch Mode of development

Phase (Km)
Phase I
Component 1 11.00 Gachibowli-APPA Junction Construction/EPC contract
Component 2 13.38 APPA Junction – Construction/EPC contract
Shamshabad
Phase II
Phase II A 67.3 Narsingi-Patancheru & PPP (BOT-Annuity)
Shamshabad-Pedda Amberpet
Phase II B 71.3 Patancheri-Pedda Amberpet PPP (BOT-Annuity)
Source: GoAP (2012)
The project also envisaged the development of 33 Radial Ring roads in 4/6/8 lanes (including
the widening of some existing roads) during both phases. But, it was not taken up due to the
paucity of funds; one radial road was developed in Phase I and another seven in Phase II. The
remaining radial roads connecting the parts of city to HORR are now proposed to be
developed at the end of the Phase II. At the end of the Phase II, an Intelligent Traffic
Management System (ITMS) was also proposed to be developed so that the real time data on
traffic, weather, accidents etc can be transmitted through Cross-Coupled Television (CCTV)
network, which would improve traffic surveillance as well as accident/ incident management.

2.5 Project Costs and Finance

The initial HORR project cost estimates as well as modes of finance are shown in Table 3.

Table 3 HORR Project costs and finance

Development Estimated Mode of Finance Remarks

Phase Cost (INR)
Phase I 500 Crores* Long Term Loan from the Land bank of HMDA was
(including PVNR Consortium of Five mortgaged to the
Expressway) National Banks Consortium
Phase II 2,500 Crores Development Assistance Development Credit

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Paper included in the Proceedings of International Conference on Construction, Real estate,
Infrastructure and Project (ICRIP) Management 2017 held at NICMAR Pune on November 10-11,
2017 as a book entitled Urban Planning and Infrastructure Management published by NICMAR-Pune

(including 3 from Japan International agreement signed

radial roads) Cooperation Agency (JICA) between GoAP and JICA
33 Radial roads 750 Crores Own Funds of HMDA Taken up for partially and
development remaining proposed under
(including 3 other schemes
roads of phase II)
Source: Net Resources International (2012)
* Excluding the cost of PVNR express, which was estimated at Rs 600 Crores
NB: The ORR project cots do not include the cost of developing an ITMS to be developed later, which was
estimated to cost Rs 1500 crores.
The cost estimates of Phases I and II were revised to Rs 561crores and Rs 4,500 crores
subsequently in 2010. As the Phase I was mostly completed, the entire amount of JICA
development assistance of Rs 4,185 crores was proposed to be spent in Phase II. Later, the
cost estimates were further revised for Phase II at Rs 6,000 Crores. The final cost estimates
are pegged at Rs 699 crores and Rs 6700 crores for Phase I and Phase II respectively (GoAP
2012). The HORR project met funds crunch during the Phase I itself that led to the deferral
of radial ring roads component. The Phase II implementation was delayed due to the finance
crunch at HMDA and it is the development assistance from JICA which gave a lifeline for the
project in March 2008. JICA funds were utilised for completing remaining Phase II-A works
and entire Phase II-B. Seven radial roads were developed during Phase II using JICA loan,
but most of them are awaiting development under various other infrastructure development
schemes due to the paucity of funds available with HMDA (Full Hyderabad 2013).

The cost recovery mechanism was not well envisaged in the project since its inception. In
fact, the project appraisal report itself stated clearly that the project was not strong on
financial parameters but justifiable on the counts of social, economic and other benefits. The
entire development of Phase I was done at the cost of HMDA funds, or in other words, from
the public exchequer. The Phase II development was envisaged under BOT-Annuity, which
involved grant payment during construction (paid in four instalments) and annuity payments
(of 25 instalments) to be made by the HMDA to the concession partners (GoAP 2012). The
HMDA proposed the levy and collection of toll tax on the HORR as well as the PVNR
expressway, but it was not approved by the Government. The realisation of inevitable levy of
toll tax came much later, when there was no money left with the HMDA for making loan
repayments to Banks and JICA. The government finally allowed the HMDA to levy and

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Paper included in the Proceedings of International Conference on Construction, Real estate,
Infrastructure and Project (ICRIP) Management 2017 held at NICMAR Pune on November 10-11,
2017 as a book entitled Urban Planning and Infrastructure Management published by NICMAR-Pune

collect toll tax on the ORR (Indian Express 2015). The levy and collection of toll tax on
PVNR expressway was cleared by the Government in 2010 (ToI 2010).

2.6 Project Implementation

The construction work of Phase I of the ORR project was awarded as conventional contracts
to two different contractors through international competitive bidding under two packages.
This ensured that the ORR construction work matched world class construction in terms of
quality. The Phase II of the ORR was proposed to be developed as PPP project. Further, as
the project costs were large, the road development was awarded in multiple packages to
different firms while keeping in mind their appetite and also to promote competition.

The HORR project implementation of Phase II-A was proposed under BOT- Annuity model.
The concessionaires were selected through a competitive bidding process and were given 15
year concession contract, which includes an estimated construction period of 30 months. The
construction work under Phase II-A was divided into five contract packages and awarded to
five different EPC contractors. Due to the problems faced in Phase II-A, the project
implementation in Phase II-B was sought under Joint Venture (JV) model and the contractors
were given EPC contracts. The construction work under Phase II-B was also divided into six
contract packages and awarded to three different contractors.

Table 4 shows the summary of contracts awarded in the various project phases.

Table 4 HORR Project implementation model and contracts awarded

Project Implementation Model Contract Road Length Contract Date

Phase Amount (Rs) (Km)
Phase I EPC Contracts 561 Crores 24.38 March 2006
Phase II-A BOT-Annuity Contracts 2,439 Crores 62.3 December 2007
Phase II-B EPC Contracts 3,558 Crores 75.3 June 2009
Source: GoAP (2012)

2.7 Land Acquisition and Compensation

An important aspect of a road development project and its success is land acquisition
(Nallathiga 2009). A gigantic project like the HORR faced a great amount of challenge on

9
Paper included in the Proceedings of International Conference on Construction, Real estate,
Infrastructure and Project (ICRIP) Management 2017 held at NICMAR Pune on November 10-11,
2017 as a book entitled Urban Planning and Infrastructure Management published by NICMAR-Pune

this front. A total amount of 5,142 acres of land covering 83 villages was required for the
HORR. Out of this, there 590 acres were Government‟s own land and 312 acres belonged to
Forest department, which could be to be transferred to HMDA for road development. This
leaves land acquisition of 5,142 acres from private land owners and much of it was envisaged
through conventional channel involving monetary compensation payment to land owners.
The amount land required for HORR in two Phases was estimated as below (Net Resources
International 2012):

 Phase I, covering the 22 Km stretch of ORR, required the total land of 750 acres, out
of which the private land was 500 acres;
 Phase II, which covers the remaining 137 Km, required land acquisition of about
5500 acres out of which the Government land is about 1000 acres.

The land required for the HORR project was sought to be acquired by passing General
Award. The Government of AP had approved the Compensation Package for the Project
Affected Families of the Phase II, Land Acquisition, vide, GO Ms No. 14, IID(2), dt.
18.12.06. The normal provisions of the Land Acquisition Act 1894 were being observed for
determining compensation amounts. Compensation was sought to be paid to land owners
with a clear title. For the losers of Houses, the Rehabilitation measures are being worked out
based on the Resettlement & Rehabilitation (R&R) Policy 2005 of the GoAP, which is one of
first kind to bring compensating for the loss of structures, assets and livelihoods under the
rehabilitation programme of large development projects1 (GoAP 2005).

The land acquisition, however, did not follow a smooth path2. The land owners
initially protested against the acquisition of their land; some large influential land owners
were even able to force the HMDA to make changes to HORR alignment. The price of land
under acquisition was to be based on „current market transactions‟ of land, which did not
reflect the correct market price of land. Therefore, land owners protested against the
compensation award made by the HMDA. Subsequently, the matter was raised to the State
Government, which formed a State Level Nodal Committee (SLNC) for fixing the award of
compensation for land. The SLNC recognized the merit of the argument and raised the
compensation to be paid to land owners across all stretches of land for HORR ranging from

1
In fact, the Land acquisition and Rehabilitation & Resettlement Bill, 2011 came much later but it has more
comprehensive in coverage in terms of the assessment of compensation and R&R.
2
A more detailed assessment can be found in Nallathiga et al (2014)

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Paper included in the Proceedings of International Conference on Construction, Real estate,
Infrastructure and Project (ICRIP) Management 2017 held at NICMAR Pune on November 10-11,
2017 as a book entitled Urban Planning and Infrastructure Management published by NICMAR-Pune

40% to 100%. The HMDA formed a separate cell and developed a data base of land parcels
to be acquired for better record keeping and raised the compensation to be paid. Land
acquisition picked up much thereafter and construction work began. Yet, there are some land
parcels under dispute, either due to compensation award not completed or due to court cases
filed by land owners/ interested parties (Nallathiga et al 2014). This proved to be very
difficult aspect of the project to handle, and it contributed significantly to the time delays in
the execution of HORR project and resulted in concomitant cost overruns. Whereas, in other
States like Gujarat such hurdles are overcome through land pooling schemes like TPS
mechanism for acquiring land from its owners (Ballaney and Patel 2009).

3. Conclusions

This paper began with an exposition of PPPs becoming the way forward for
infrastructure development (particularly road infrastructure) to be examined through a case
study of an urban ring road project in India. The HORR has some good features – especially
in the role played in the traffic dispersal, improving the connectivity and promoting regional
development. It comes at a time when such projects are needed for the development of
Hyderabad metropolitan area i.e., it is designed to cater to the future well ahead of time.
However, the implementation of the HORR project has been conceived and achieved
different altogether. The Phase I of the project was somewhat simple, small and well
specified. As a result, the implementation of Phase I was achieved well within budget and
timelines using conventional EPC contracts. The Phase II of the project was implemented
under PPP but met with little or no success. The Phase II was complex and did not have good
implementation and financing arrangements. Land acquisition for the HORR project met with
difficulties and, therefore, it suffered from huge delays and large cost overruns. However, the
HORR project is a larger „corridor project‟ that would give a boost to residential development
through satellite townships as well as to industrial development through various SEZs;
therefore, these may give rise to more benefits in future and its long term success.

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 Paper included in the Proceedings of International Conference on Construction, Real estate,
Infrastructure and Project (ICRIP) Management 2017 held at NICMAR Pune on November 10-11,
2017 as a book entitled Urban Planning and Infrastructure Management published by NICMAR-Pune

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