Annex 6 Sample TOR for CMP Preparation

This annex provides a sample terms of reference (TOR) for use in appointing consultants to assist with the preparation of a CMP. The TOR should be amended where necessary to reflect each city’s characteristics.

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Sample TOR for the Preparation of a CMP


Rapid development is exacerbating urban transport problems, such as traffic congestion and accidents. Substantial efforts are being made, but cities have difficulty coping with the rapid increase in the number of private vehicles while improving personal mobility and goods distribution. There is insufficient transport planning capacity within local government. In particular:

  • Although many proposals have been submitted for the Jawaharlal Nehru National Urban Renewal Mission (JNNURM) fund to implement various urban transport projects (including Mass Rapid Transit (MRT), Bus Rapid Transit (BRT), flyovers and road improvements) there is often inadequate information and incomplete analysis and the proposals are not grounded in a comprehensive urban transport strategy or integrated either with land use or transport plans.
  • Although some cities have prepared urban transport master plans and undertaken comprehensive transport and traffic studies, these focused mainly on catering for vehicles and did not pay enough attention to personal mobility or goods distribution.

It is important to focus on personal mobility to achieve cost-effective and equitable urban transport measures within an appropriate and consistent methodology. This is in line with the National Urban Transport Policy (NUTP). Accordingly, the Ministry of Urban Development (MoUD) encourages each city to prepare a Comprehensive Mobility Plan (CMP) as part of long-term urban transport strategy to provide for a sustainable improvement in the mobility of people and goods in metropolitan regions.

The CMP is a key document providing the rationale for transport proposals. Therefore, within the overall planning hierarchy, the CMP may be considered a prerequisite for the submission of DPR (Level 1) for JNNURM funding. All cities considering a funding application to central government are recommended to submit a CMP and to obtain approval from MoUD.

Guidelines and Toolkits for Urban Transport Development were prepared in 2008 under Technical Assistance on Urban Transport Strategy (TA 4836-IND), funded by the Asian Development Bank. They are designed for decision makers and practitioners in states and municipal governments concerned with urban transport development in medium-sized cities and for use when appraising projects for funding by the JNNURM.

The initial set of Guidelines and Toolkits (others are being prepared) comprises the following modules:

Module 1: Comprehensive Mobility Plan: Preparation Toolkit (which is attached as an Annex to the TOR)

Module 2: Bus Rapid Transit (HCBRT): Toolkit for Feasibility Studies

Module 3: Bus Service Improvement: Policy and Options

Module 4: Parking Measures: Policy and Options

Module 5: Non-motorized Transport (NMT) Measures: Policy and Options

The Guidelines and Toolkits focus on the planning process and on developing policy options. They do not provide technical guidelines for the development of detailed transport measures, for which references are given in each case.

Module 1 provides the toolkit for CMP preparation, defining the tasks and providing general guidelines on key issues. The consultants should closely adhere to the methodology and content of the CMP, as described in Module 1.


The tasks to be carried out are detailed below. The consultants should also refer to Module 1 and its Annexes for further details.

  • Task 1 Confirm Scope and Timeframe
  • Task 2 Collect Data and Analyze Urban Transport Environment
  • Task 3 Prepare and Evaluate Urban Transport Development Strategy
  • Task 4 Develop Urban Mobility Plans
  • Task 5 Prepare Implementation Programme
  • Task 6 Stakeholder Consultations

Task 1 Confirm Scope and Timeframe

As an initial task, the area covered by the CMP and the planning horizons should be clearly defined, in association with all agencies concerned.

  • CMP planning area, typically the metropolitan area (or agglomerated area) including satellite towns (e.g. jurisdictional area of metropolitan Development Authority); and
  • Target years and planning horizons (long, medium and short term). Generally the short and medium term target years should be 5 and 10 years from the base year respectively and the long term planning horizon should extend to 20 years. The base year should be the latest year for which data are widely available at the start of work. This will typically be the year preceding the study.

Task 2 Collect Data and Analyze Urban Transport Environment

Task 2-1 Review City Profile

Prepare a brief profile of the CMP planning area from available documents, including:

  • Location
  • Population and demographic data
  • Land area
  • Regional linkages
  • Socio-economic data; and
  • Environmental issues, such as natural conservation areas.

Task 2-2 Collect Data and Review Urban Transport System

Collect and review all relevant reports, with particular attention to the City Development Plan (CDP). Data on socio–economic characteristics, vehicle ownership, the transport network, transport policy and other available engineering parameters relevant to the CMP shall be collected. All other relevant information relating to accidents, land use planning, mapping, rights of way on key corridors shall be collected. Any inconsistency or deficiency in the information shall be addressed.

In addition to the above the consultants shall collect the following items (as available):

  • Small-scale maps land use maps
  • SPOT-satellite images
  • Socio-economic data.

Prepare a database more specifically relative to land-use and topography of the area. Of special importance in the process of traffic model development and generating engineering solutions is the evaluation of SPOT satellite imagery, providing an updated picture of land use.

To review the existing urban transport systems, the consultants should collect and review the following data and information, through literature review, interview survey and field surveys. Details are given under this task in Module 1, the Annexes to which contain sample forms.

  • Existing studies, reports and proposals
  • Existing transport infrastructure
  • Public transport
  • Traffic safety and enforcement
  • Institutional and financial situation
  • Environmental and social condition.

Task 2-3 Traffic Surveys and Inventories

Traffic and other surveys, as defined below, shall be carried out in the form of surveys, data collection, assessment, analysis and evaluation. The objective is to determine:

  • Traffic flow and composition by link
  • Assessment of level of service
  • Vehicle characteristics for determination of vehicle operating costs

Proposed traffic survey locations should be identified during Task 1 and be listed in the Inception Report.

Task 2.3.1 Manual Classified Counts

Classified volume counts will be conducted at critical links and intersections for a period of 8 hours (4 in the morning and 4 in the evening) including the morning and evening peak hours. The following data will be collected:

  • Category wise hourly flow
  • Category wise hourly turning movement
  • Variation in flow before, during and after the peak.

Task 2.3.2 Parking Survey

Work and business centres, shopping complexes and tourist attractions are major generators of parking demand. Parking demand should be established by a manual count of each vehicle type where there is significant on-street parking occurs. The survey will be conducted for a period of 12 hours continuously in such areas.

Task 2.3.3 Origin-Destination Survey

Origin-destination surveys will be conducted through roadside interviews on an outer cordon i.e. major entry/exit points and on corridors where important activity locations are situated. The tentative number and location of survey stations, the survey time in hours per day, will be confirmed after detailed discussions with the client. The location and timing of the roadside interviews will coincide with that of traffic counts to facilitate adjustment for sampling. The information shall be obtained by trained enumerators and experienced supervisors and include: type of vehicle, make, type of commodity carried, origin and destination, trip purpose, place of residence and employment of road user and frequency of travel.

Task 2.3.4 Speed and Delay Surveys

These surveys will establish road capacity and extent of congestion on key sections to determine possible improvements: widening, intersections, traffic control, traffic management etc. The consultants shall carry out speed delay surveys in both peak and anti-peak directions during peak and off-peak hours.

The free speed shall be observed and impact of the prevailing traffic on running speed during peak and off-peak hours for each section shall be established to indicate the level of congestion. Typical delays and causes shall be identified.

Task 2.3.5 Mass Transit and Passengers Survey

The survey will be conducted on routes within the city and at terminal areas for a period of 24 hours. The basic purpose of the survey will be to collect information regarding origin, destination, trip purpose, frequency of travel and other particulars. The random survey sampling technique will be adopted to survey the passengers and will cover all modes.

Task 2.3.6 Commuter Survey

Public and private trips by all modes which originate/terminate outside the city planning area with destination/origin within the city will be surveyed. The survey will be planned for 24 hours at railway stations, river banks, seaports, airport etc. and at an outer cordon.

Task 2.3.7 Household Survey

This survey will collect data on travel characteristics of household residents and general characteristics of the household influencing trip making. The study area will be divided into zones. A sample size of a minimum of 2 % of households will be covered. Based on the survey, travel demand characteristics will be established.

Task 2.3.8 Vehicle Operators’ Survey

A sample survey of operators of taxis, auto rickshaws, goods vehicles along with slow moving goods vehicles will be conducted inside the city area with assistance from the vehicle owners’ associations. Information on vehicle and operating characteristics will be collected. In the case of slow moving goods vehicles, operating cost, socio-economic characteristics of operators and routes of operation will be determined.

Task 2.3.9 Terminal Area Survey

This survey will collect information on movement patterns of persons/goods at major terminal and market areas: vehicle (goods and passenger) entry/exit, including commodity/occupancy etc. The survey is to be undertaken at main railway stations, bus terminals, port/river bank, airport etc.

Task 2.3.10 Pedestrian Survey

Pedestrian surveys will be carried out to assess flows/demand at identified major intersections and road corridors. The survey will be from 06:00 to 22:00 on a normal working day and will detail the number of pedestrians moving along and across the road at mid block and at intersections.

Task 2.3.11 Road Inventory

An inventory will be conducted along all major roads in adequate detail, including link lengths, cross-sectional details, type and general surface condition, street furniture, intersections, control devices, drainage condition, abutting land use etc.

Task 2.3.12 Topographic Surveys at Key Sections/Junctions

The consultants shall conduct plane table surveys to prepare base plans for critical sections and junctions to facilitate improvements. Total station survey will also be conducted for major terminals (bus and rail), based on the prevailing traffic circulation pattern and parking demand etc. and appropriate improvement proposals will be established.

Task 2.3.13 Develop Base-Year Transport Demand Model

In this task, a base-year transport demand model will be developed using the results of the O-D survey. Key steps in demand modeling are elaborated in Module 1 Annex 4.

The CMP should apply traffic demand modeling to analyse/evaluate urban land use and the transport system. Modeling provides a quantitative and scientific approach to improving mobility. The modeling should emphasize person-based travel patterns, along with vehicle movements and include more NMV/pedestrian movements than conventional modeling approaches. It should also enable integrated planning of urban land use and the transport system.

Task 2-4 Review Land Use Plan

Data on existing land use and land use plans should be collected and presented, through a detailed review of existing development plans, including the Master Plan and/or the City Development Plan (CDP). In particular, new development areas that will affect transport demand in the planning area should be inventoried and summarized (Module 1 Annex 1 Survey Form 4-1 should be used).

Task 2-5 Analyse Traffic/Transport Situation

Based on the information/data collected, a basic analysis of the transport and traffic situation should be carried out identifying characteristics and issues for the city. The following should be carried out (further details are given in Module 1 under this task):

  • Comparative analysis of urban transport situation
  • Diagnosis of urban transport situation
  • Analysis of traffic characteristics
  • Analysis of traffic
  • Analysis of social conditions

Task 3 Prepare and Evaluate Urban Transport Development Strategy

Task 3-1 Visions and Goals

It is essential that the mobility improvement measures in CMP form a coherent package with a consistent vision and goals for the desirable direction of city urban transport. The visions and goals define the desired form of long-term urban transport system in the city. While visions are statements of the desirable direction of urban transport development, goals are quantitative/qualitative targets for major indices, to be achieved within the planning horizons.

Task 3-2 Urban Growth Scenarios

In this task, optimal land use and transport systems will be examined. For analytical purposes, urban growth scenarios will be developed in combination with strategic level transport networks. Master Plans regulate land use pattern, but the CMP could provide a preferred growth scenario from the viewpoint of an optimal urban land use and transport development pattern.

Task 3-3 Future Transport Network Scenarios

The future transport network consists of the existing network and additional network. Future modal split (ratio of trips made by public and private transport modes) needs to be estimated by the use of modelling analysis. When the detailed modelling method is not applied, it is recommended to set several modal split scenarios that will be used in generating alternative transport networks to meet the future travel demand.

Task 3-4 Development Urban Land Use and Transport Strategy

Each combination of transport network and urban growth scenario developed in the previous tasks should be assessed using the transport demand model. Land use patterns will be included in the modelling analyses, in terms of a specific distribution of residential population and employment. Various land-use planning measures should be considered in relation to transport development strategies. The alternative development scenarios will be evaluated by using criteria, such as potential for developing public transport systems, total travel time, average travel speed, and economic indices. Based on the evaluation, a desirable urban development strategy will be proposed.

Task 4 Develop Urban Mobility Plans

Urban transport projects should be identified which would support the CMP vision and goals and the development scenario. The existing project list, summarized in Task 2, will be a starting point. Example projects include:

Task 4-1 Public Transport Improvement Plan

A public transport improvement plan should be developed, that covers:

  • Development of Bus Service or Bus Improvement Plan
  • Development of Trunk and Feeder Public Transport Network
  • MRT Options

Mass Rapid Transit (MRT) refers to a public transport system carrying passengers within and between urban areas. Selection of MRT appropriate systems should be undertaken by considering corridor characteristics and the technical parameters of available MRT systems. Module 1 (CMP Toolkit) shows a suggest approach for selecting MRT options.

Task 4-2 Road Network Development Plan

Road projects will be developed and listed in the CMP, including the following:

  • Hierarchical Road Network;
  • Arterial Road Construction/Widening Projects;
  • Secondary Road Construction/Widening Projects;
  • Intersection Improvement Projects;
  • Flyover Projects; and
  • Railway over Bridge (ROB) or Underpass Projects.

The Road Network Plan should include the following aspects: (i) existing and future traffic bottlenecks, (ii) explanation of proposed strategy in terms of land use pattern, (iii) public transport network, (iv) role and benefit of each project within the Road Network Plan, (v) recommendations for infrastructure, (vi) operations and maintenance on existing and proposed road networks, (vi) provision of sidewalks and NMV lanes, and (viii) estimated costs of proposed projects.

Task 4-3 NMT Facilities

Planning for pedestrians, bicycles and cycle rickshaws will be one of the most important tasks in CMP preparation. As the CMP sets out vision/goals for the metropolitan region and serves as a strategic level plan for urban land use and transport systems, the NMT policy level planning may be accepted. However, detailed NMT improvement plans and traffic management measures can be worked out for CBD, commercial centres, and other major activity centres, which refine NMT policy for the whole region and provide the costing basis to implement such policy.

Task 4-4 Mobility Management Measures

Measures for mobility management should be developed with implications for regulation and enforcement. The topics to be covered in this plan include:

  • Pedestrian Facilities
  • NMV Facilities
  • Traffic Control Measures
  • Parking Plan
  • Intersection Improvement Projects (in parallel with Road Network Development Plan)
  • Demand Management Measures
  • Traffic Safety Plan
  • Para-Transit Plan
  • Intelligent Transport System (ITS) and User Information

Task 4-5 Regulatory and Institutional Measures

Effective development of urban land use and the transport system often requires regulatory and institutional changes. Such requirement should be thoroughly worked out and documented in the CMP. The regulatory and institutional plan should include the following:

  • Bus service improvement (concession, privatization, and lease contract);
  • Traffic safety improvement (traffic regulation, mandatory road user education, enforcement systems);
  • Introduction of Transport Demand Management (TDM) measures ;
  • Vehicle emissions (focus on non-fuel based vehicles and compressed natural gas/CNG vehicles); and
  • Public-Private Partnership
  • Coordination mechanism to integrate public transport operation and to integrate fares;
  • Establishment of Unified Metropolitan Transport Authorities (UMTA);
  • Establishment of SPVs for the implementation of proposed projects; and
  • Changes necessary to promote Public-Private Partnerships (PPPs).

Task 4-6 Fiscal Measures

Fiscal measures should also be considered to achieve balanced modal split, and to secure the budget necessary to implement urban transport projects. The following aspects may have to be examined in the CMP document:

  • Fare policy for public transportation, and parking;
  • Subsidy policy for public transport operators;
  • Taxation on private vehicles and public transport vehicles; and
  • Potential for road congestion charging.

Task 4-7 CMP Measures and NUTP Obligations

Prepare a table summarizing the relationship between the NUTP objectives and the measures proposed in the CMP, together with a classification of the measures according to their implementation time frame (short, medium and long term).

Task 5 Prepare Implementation Programme

Task 5-1 Implementation Programme

An implementation programme including practical procedures to implement the proposed measures, in terms of timeframe, financing options and implementation agencies, should be prepared. A brief summary of project information is required, including project title, location, estimated cost etc. Proposed projects should be evaluated and prioritized against clear criteria and classified into short, medium and long-term.

Specifically, the following tasks should be conducted.

  • Preparation of Project Longlist
  • Selection of Priority Measures
  • Prioritization Methodology
  • Identification of Implementation Agencies
  • Identification of Possible Financing Options
  • Development of Implementation Programme

Task 5-2 Social and Environmental

Perform preliminary social and environmental impact assessments of each priority project and the results and implications be fully reflected in the recommended projects. Conduct also a Strategic Environmental Impact Assessment (SEIA) in order to examine and evaluate the project justification within the national/regional and/or municipal planning framework.

Task 5-3 Project Profile Sheets

Project profile sheets should be prepared for short term projects.

Task 6 Stakeholder Consultations

The CMP should be discussed with stakeholders throughout the study. An advisory committee and workshops/seminars should be organized to coordinate and develop a consensus. In particular workshops/seminars should be held at: (i) Inception Report, (ii) Interim Report and (iii) Draft Final Report stages. The primary objective of (i) should be to develop a working relationship with stakeholders and to obtain their views on the CMP.

The primary stakeholder, the Municipality and its concerned officials should be fully involved throughout the work, such that all aspects of the CMP development process and its subsequent updating are within the capacity of such officials by the end of the study.



The study is to be completed within xx (note: this will vary with city, but should be not more than 12) months. The deliverables are listed below. The consultant may also submit working papers for comment as required.

Deliverable Submission Date (Maximum No. of Months from Start of Work) No. of Copies
Inception Report and Detailed Work Plan 1 X
Interim Report 6 X
Draft Final CMP 11 X
Final CMP with Executive summary Within 1 month of receipt of comments X

A soft copy including database material (in PDF and Word /Excel /PPT/Dwg format) shall be submitted with each of the above.

Inception Report and Work Plan: This report shall cover Task 1 and provide the consultants’ initial assessment, a review of problems encountered (if any) and proposed solutions and confirmation of the work plan for the remainder of the study.

Interim Report: This report shall cover Task 2 (Data Collection, Analysis of Existing Urban Transport Environment and Development of Transport Model) and will detail the necessary surveys/studies, data collection and analysis for the short term traffic management plan and proposals that need to be implemented. The report shall also contain conceptual insight for the medium/long term.

Draft Final CMP: This shall contain the Comprehensive Mobility Plan (Tasks 3, 4, 5, and 6) and recommendations. The Interim Report database and traffic model shall be included as an Annex, updated if required.

Final CMP and Executive Summary: This shall contain the final CMP and an Executive Summary including responses to comments from the Ministry of Urban Development.

Report formats shall be proposed in the Inception Report and after agreement with the client, subsequent reports shall be submitted in the agreed format. A sample table of contents for the CMP is given in Module 1 (CMP Toolkit).

Payment Schedule

Payment shall be made according to the following Schedule, which is based on the submission of deliverables.

Submission/Acceptance of: Payment as % of total
1. Inception Report and Work Plan x%
2. Interim Report x %
3. Draft CMP x %
Sub total x%
4. Acceptance of Draft CMP x%
5. Acceptance of Final CMP and Executive Summary x%
Total 100%


The consultants shall provide details of relevant experience in carrying out similar work along with a copy of client certificates/testimonials. CVs for proposed staff should be included with the Technical Proposal. Staff should have experience in the following disciplines:

Team Leader/Urban Transport Planner

Public Transport Planner

Land Use Planner

NMT Planning and Traffic Management Specialist

Highway Engineer

Traffic Survey and Modeling Specialist

Environmental and Social Expert

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