19 July 2018

Subject: Potholes killed 3,597 people across India in 2017; Who is responsible?

Dear Highway Colleagues:

The Times of India reported on 16 July 2018 that potholes killed 3,597 people across India in
2017, claiming almost 10 lives daily; and more than 50% rise over the toll for 2016.

Being a highway engineer, I was questioned by a retired IPS officer in Jaipur. The following Q
and A ensued:

Q. Who is responsible for these tragic deaths from potholes in India, which are increasing
and not being addressed?

A. The entire highway fraternity including academia (both active and retired) are to blame. It is a
serious blot on us all. Most of us are acting like bystanders doing nothing, just criticizing the
government.

Q. Why potholes are not patched properly and promptly as and when they develop
throughout the year including cold winter and rainy season? What is the main problem?

A. Engineers who are responsible for this do not have on hand a suitable pothole patching mix
which has the following attributes:

 Most economical to produce and apply

 More or less permanent (over 5 years’ service life)
 Should be readymade cold mix with a storage life of at least 6 months, supplied in 50-kg
bags for ease in handling and transportation
 Should be idiot-proof in application: potholes need not be dry; no spraying of bitumen
needed; compaction with a handheld rammer by a labourer only; and opening to traffic
right away. In other words, no other material or machinery needed.
 Should not be patented; anybody should be able to make it using local materials
 Pothole patching should be possible during lull in rain showers (just sweep the excess
water out of potholes)
 Pothole patching should be possible during extreme cold winter conditions and hot
summer conditions

Q. Is such an idiot-proof, economical, and highly effective pothole patching mix available in
India, which meets Indian Roads Congress (IRC) specifications?

1
A. Yes, the Indian Roads Congress issued IRC:116, “Specifications for Readymade Pothole
Patching Mix Using Cut-Back Bitumen” in 2014. It was drafted by me based on a pothole
patching mix I developed in the US while working as Chief Asphalt Road Engineer of the
Pennsylvania Department of Transportation. That mix was adjudged as the best pothole patching
mix in a 4-year US nationwide field research study (documented by US Transportation Research
Board). It has had excellent field performance when used by the Rajasthan PWD and the Jaipur
Development Authority. That is why; IRC adopted it.

Q. What is your role concerning this patching mix: do you hold a patent; do you produce
it; and do you sell it?

A. None whatsoever you mentioned. I have zero self-interest. It is an unpatented, generic mix
produced in accordance with IRC specification by local contractors using local materials.
Although it is simple to produce, I can provide voluntary technical assistance if there are any
questions concerning its production and placement.

Q. Is there any other pothole patching mix available in India, which is more economical
and equally effective throughout the year?

A. None whatsoever to my knowledge. I have challenged my highway colleagues to let me know

if there is such a mix. If so, I will definitely publicize that mix.

Q. One can wonder as to why this “magical” pothole patching mix has not been adopted
across India, which is the need of the hour to prevent these unwarranted tragic deaths
resulting from potholes? These are only deaths; numerous serious injuries also result as
well.

A. I am really puzzled myself. For the last 8 years or so, I have been writing to my highway
colleagues (sometimes twice a year) like a “broken gramophone record” about this amazing,
simple pothole repair technology. Now, I have over 2000 highway engineers across India on my
mailing list. I have provided to them all necessary documents (such as IRC specification;
nomenclature for this item for Basic Schedule of Rates and Notice for inviting tenders).
Unfortunately, no response so far from them.

Q. You have persistently championed this cause for a number of years with no self interest
whatsoever. Don’t you get frustrated when there are no takers in the highway fraternity?

A. Yes, as a senior citizen, retired highway engineer of India I do get frustrated. We are killing
people. To put it bluntly, we are no different than many people who simply stand near road
accident victims without providing any aid. Sometimes, I wonder where is our “Atma” (soul)?

2
Q. Have you written to Hon. Nitin Gadkari and the Ministry of Road Transport and
Highways (MORTH) to encourage the states to implement this IRC approved specification
for pothole repair technology?

A. Yes, I have. MORTH refused to issue a circular to states for encouraging the use of this IRC
approved specification. I do not understand why?

Q. What the State PWD, CPWD, MES, BRO, City Governments, and Municipal Engineers
can do to implement this technology?

A. They can take the following simple actions TODAY:

 Include the items of supplying and applying this mix in potholes in their Basic Schedule
of Rates (BSR) for facilitating the tendering process. Necessary nomenclature and rate
analyses for inclusion in the BSR are given in attached Annexure A, B, and C. IRC
Specification is also attached. [I am offering everything on a plate; they just have to eat
it.]
 Estimate the quantities of the readymade mix required by them and issue tenders today.
Keep in mind, this mix has a shelf life of over 6 months and can be used throughout the
year. Their local contractors can make it using locally available materials. They can order
MC-800 Cutback Bitumen and antistripping agent from their local bitumen suppliers.
Right now, HINCOL and Tiki Tar are supplying to Rajasthan contractors. Other can too.
Patching the pothole requires a laborer with a hand rammer only.
 Contact me via email if there is a need for voluntary technical assistance.

Q. This action is to be taken by the active highway engineers. What about those who are
retired?

A. It is the moral responsibility of the retired engineers to contact those who are in office now
(most likely one time their juniors) and apprise them about this technology and what to do to
implement it. They would be doing a great service to our nation. We have to realize most
government engineers are not technically savvy; some do not use emails even (I may not be
reaching them). They need advice and assistance.

Q. What about the Civil Engineering academia across India, how can they contribute?

A. It is their moral responsibility to demonstrate the utility of this mix and provide technical
assistance to the government engineers (city and state) in the community where they live. It can
be difficult but can be done with persistence. I had the privilege of motivating the students and
faculty of the Malviya National Institute of Technology (MNIT) in Jaipur where I live.
Together, we made this amazing mix and patched pothole of Jaipur roads. We got a lot of
publicity and now the Jaipur Development Authority is using it routinely since 2010. They are

3
extremely happy with its performance. I have prepared a 25-minute video clip of my lecture on it
to convince you about its unbelievable field performance. Please watch it at the following link:
https://youtu.be/85yKlkxGsPU

Q. What is your future plan in promoting this amazing pothole repair technology?

A. Although frustrated, I am not giving it up. I have approached concerned highway authorities
with no luck so far. The World Bank and the Asian Development Bank are likely to stop
financing road projects in India if the highway authorities cannot fix these “death traps” on
existing roads. Also, I am hoping may be one day, Hon. Prime Minister Modi will come to know
about this sordid affair and will put his foot down to implement it immediately so that these
unwarranted, preventable tragic deaths resulting from potholes can be stopped. The question is:
do we really need an authoritative order to implement it?

Sincerely,

Prof. Prithvi Singh Kandhal

Jaipur, Rajasthan
pkandhal@gmail.com
Home page: www.eng.auburn.edu/users/kandhps

“American roads are not good because America is rich, but America is rich because
American roads are good.” - John F. Kennedy

“Those who resist change will become irrelevant in the 21st Century.”
– Narendra Modi

ABOUT THE WRITER

Prof. Prithvi Singh Kandhal is Associate Director Emeritus of the National Center for Asphalt
Technology (NCAT) based at Auburn University, Alabama, U.S.A. NCAT is the largest asphalt
(bitumen) road technology center in the world.

Prior to joining NCAT in 1988, Prof. Kandhal served as Chief Asphalt Road Engineer of the
Pennsylvania Department of Transportation for 17 years. He has been chairman or president of
many national and international very prestigious organizations in the asphalt road technology
area. He co-authored the first ever textbook on bitumen road technology in the US. Recently, he
has also authored the first ever textbook on bituminous road construction technology in India.

Prof. Kandhal has been a practicing highway engineer in India for 20 years and in the US for 30
years. Recently he has drafted many standards for the Indian Roads Congress including
specifications for dense graded bituminous mixes, stone matrix asphalt and readymade pothole

4
patching mix. He was also instrumental single-handedly in introducing viscosity grading of
bitumen in India in lieu of penetration grading in 2005.

In August 2011, Prof. Kandhal was inducted on the “Wall of Honour” established at the largest
asphalt road research center in the United States. In April 2012, he received the “Lifetime
Achievement Award in Asphalt Road Technology” from the International Association of Asphalt
Paving Technologists during their annual banquet held in Austin, Texas, USA.
`

ANNEXURE A

Basic Schedule of Rates (BSR)

(Revised 6 April 2017)

Include the following 3 items in your agency’s BSR right now to facilitate the production and
use of the readymade cold pothole patching mix.

1. Supply of readymade cold bituminous pothole patching mix in accordance with IRC:116-
2014 Specifications in 50-kg plastic lined sturdy bags with 10-km average lead. Mix shall
contain at least 5.6% MC-800 Cut-back Bitumen and suitable anti-stripping agent. Mix
shall be workable and usable for at least 6 months. All 50-kg bags shall be transported to
a storage facility designated by the Engineer. Since the mix contains volatile kerosene,
sealed bags shall not be stored in a closed building or warehouse. No open flame or
smoking shall be permitted near the stored mix. Cost Rs. 370 per 50-kg bag

2. Placing and compacting readymade cold bituminous pothole patching mix in potholes in
accordance with IRC:116-2014 Specifications from 50-kg plastic lined sturdy bags with
20-km average lead. Cost Rs. 23 per 50-kg

3. Supply, placing and compacting readymade cold bituminous pothole patching mix in
accordance with IRC:116-2014 Specifications in 50-kg plastic lined sturdy bags with 10-
km average lead for supply and 20-km average lead for placement. Mix shall contain at
least 5.6% MC-800 Cut-back Bitumen and suitable anti-stripping agent. Mix shall be
workable and usable for at least 6 months. All 50-kg bags shall be transported to a
storage facility designated by the Engineer. Since the mix contains volatile kerosene,
sealed bags shall not be stored in a closed building or warehouse. No open flame or
smoking shall be permitted near the stored mix. Cost Rs. 393 per 50-kg
bag

5
 ANNEXURE B

Cost Analysis of Supplying Readymade Bituminous Pothole Patching Mix (IRC: 116-2014)
to Department Godown
(Revised 6 April 2017)

Assume one ton (1000 kg) of the mix is to be made and filled in 20 bags of 50 kg each, which
will be supplied to Department Godown for use later.

A. Cost of Materials

1. Aggregate of specified gradation

Aggregate 940 kg @ Rs. 525 per ton………………………..………….. 493.50

2. Bitumen MC-800 Cutback supplied in drums:

60 kg @ Rs. 57,000 per ton……………………………………………. 3420.00

3. Anti Stripping Agent @ 0.3 % by weight of MC-800

1.8 kg @ Rs. 140 per kg…………………………………………………. 252.00

Total for A 4165.50

B. Production Cost

1. Portable Mini Hot Mix Plant with capacity of 8 tons/day

Rent for one day = Rs. 3500. Rent to produce one ton will be
one-eighth of Rs. 3500, that is, Rs. 437.50……………………………… 437.50

2. Fuel costs: 24 liters per day; 3 liters per hour

3 liters @ Rs. 60 per liter……………………………………………… 180.00

3. Labour: 8 labourers needed per day to produce 8 tons

1 labourer needed per ton @ Rs. 400 per day…………………………. 400.00

Total for B 1017.50

C. Packing, Handling and Transport to Department Godown

1. Cost of 50-kg empty bags

20 bags @ Rs. 12 per bag……………………………………………….. 240.00

6
 2. Labour for filling, weighing and sealing bags;
3 labourers can fill 160 bags in one day (20 bags in one hour)
Cost of labourers for one day = 3 times Rs. 400 = Rs. 1200
Cost of filling 20 bags in one hour = 1200/8…………………………….. 150.00

3. Transport of bags from plant to department godown

(average 10 km lead) 1 ton@ Rs. 300 per ton…………………… ……. 300.00

Total for C 690.00

D. Total of A + B + C……………………………………………………. 5,873.00

Contractor’s overhead @ 10% of D........................................................... 587.30

Royalties, sales tax, income tax etc. @ 4.5% of D....................................... 264.28

Total 6724.58
Add 10% contractor’s margin……………………………………… 672.46

Total Cost per ton (20 bags of 50 kg each)…………………………..Rs. 7397.04

Cost per kg……………………………………………………………..Rs. 7.40

Cost per 50-kg bag……………………………………………………..Rs. 370.00

ANNEXURE C

Cost Analysis of Laying Readymade Bituminous Pothole Patching Mix (IRC:116-2014)

(Revised 6 April 2017)

Assume Eight (8) tons of the readymade mix will be laid

in potholes in one day. Costs for one day operation are as follows:

1. 4 Labourers @ Rs. 400 each…………………………………… 1,600.00

2. Transportation of bags from Department Godown to

laying site (average one-way lead of 20 km)
(a) Rent of tractor = Rs. 800
(b) Cost of diesel = Rs. 480 (tractor will consume one liter
per 5 km; 8 liters for 40 km @ Rs. 60 per liter = Rs. 480
Total transportation cost = 800 + 480 = 1280…………………… 1,280.00

7
3. Sand bags for sprinkling sand on patches to avoid pickup:

2 sand bags @ Rs. 12 per bag………………………………………24.00

Total 2,904.00

Add 10% contractor overhead……………………... 290.40

Add 4.5% for royalty, sales tax, income tax, etc……………….. 130.68

Total 3325.08

Add 10% contractor margin…………………………………….. 332.51

Total 3657.59

This is the cost for 8 tons.

Cost per ton = Rs. 457.20

Cost per kg = Rs. 0.46
Cost per 50-kg bag = Rs. 23.00

****************************************************