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India’s urban population, currently estimated at 475 million, is projected to grow by an additional 416 million by 2050. This rapid urban expansion, with 475 cities having populations of over 0.1 million, is a pressing issue that needs urgent attention. These cities contribute approximately 63 percent to the nation’s Gross Domestic Product (GDP), a figure expected to rise to 75 percent by 2030. This anticipated urban expansion necessitates not only accommodating the increasing population but also managing industrial and commercial development while recognising the evolving role of cities as service hubs for surrounding rural regions. Ensuring the efficient operation of these cities is crucial for sustaining India’s long-term economic growth.
From the transport perspective, it is imperative to equip these cities with integrated and sustainable multimodal transport systems (ISMTS) that are efficient, cost-effective, and capable of meeting future demand. Indian cities have traditionally relied on a combination of bus-based systems (such as city buses and bus rapid transit), rail-based networks (including metro, suburban rail, and trams), and private shared mobility options (such as paratransit and intermediate public transport). However, formal bus services are currently available in only 127 cities, collectively operating a fleet of 46,000 buses. Metro systems, a key component of rail-based transport, are operational in 20 Indian cities, with construction underway in seven more. Four additional cities are considering proposals for metro systems, while 20 others are conducting feasibility studies for Metro Lite. Three cities are evaluating the potential adoption of the Metro Neo.
UMTAs are envisioned to ensure coordinated planning and execution of urban transport initiatives, ultimately serving as the institutional framework for achieving integrated urban transport systems.
A review of the ISMTS in Indian cities reveals that various modes of transport often operate independently, without sufficient coordination or integration. This lack of cohesion raises significant concerns about the sustainability of urban transport systems. Among the five key pillars of ISMTS—information integration, fare integration, physical integration, operational integration, and institutional integration—the last is the most critical.
In this context, the National Urban Transport Policy 2006 (NUTP), among other recommendations, proposes the establishment of Unified Metropolitan Transport Authorities (UMTA) in cities with populations exceeding one million, often referred to as “million-plus cities.” UMTAs are envisioned to ensure coordinated planning and execution of urban transport initiatives, ultimately serving as the institutional framework for achieving integrated urban transport systems.
India’s ISMTS ecosystem involves numerous agencies responsible for various transportation aspects, including planning, operations and management of different transport modes. Table 1 presents an overview of the city-level agencies managing urban transport systems.
Table 1: Urban transport functions and various agencies involved
| Sr.No. | Urban Transport Function | Agencies Involved |
| 1. | Regulatory functions | · Department of Transport · Pollution Control Board · Traffic Police · Finance Department · Town and Country Planning Department |
| 2. | Road Infrastructure | · Urban Local Bodies (ULBs) · Town and Country Planning Department · National Highway Authority of India (NHAI) · Public Works Department · Municipal administration · Airports Authority of India · Urban Development Authority · Road and Building Department |
| 3. | Strategic Policymaking | · Finance Department · Transport Department · ULBs · Urban Development / Land Planning Authority |
| 4. | Bus and Rail infrastructure | · State Transport Corporation/ Special Purpose Vehicles (SPVs) for public transport · ULBs · Metro Rail Corporations |
| 5. | Non-motorised transport infrastructure | · ULBs |
| 6. | Suburban Railways | · Indian Railways |
| 7. | Integrated services | · Town and Country Planning Department |
Source: Ministry of Urban Development, Operations Document for UMTA 2016.
The involvement of multiple agencies in urban transport functions varies significantly depending on the type of urban local body (ULB). These agencies often operate independently, leading to duplication of efforts and neglecting essential tasks. For instance, the City Municipal Corporation Act and the State Housing Board Act 1961 govern the planning functions. Additionally, the Directorate of Town and Country Planning, established under the Town and Country Planning Act, is responsible for preparing master plans, which overlap with the planning responsibilities of ULBs and Housing Boards.
Traffic management frequently causes interagency conflicts. In addition to the Traffic Police and regional transport authorities, several other departments also influence traffic flow. For example, ULBs can restrict traffic due to construction activities or vehicle weight regulations, while the Housing Boards have the authority to limit access to public roads under their jurisdictions. Imposing traffic restrictions without proper coordination often results in significant confusion and inconvenience for commuters.
The Directorate of Town and Country Planning, established under the Town and Country Planning Act, is responsible for preparing master plans, which overlap with the planning responsibilities of ULBs and Housing Boards.
The Indian Constitution and various urban reform initiatives emphasise that ULBs must be responsible for parking policies. However, different agencies responsible for multiple modes of transport enforce parking policies within their jurisdictions. For example, a multitude of laws, including the Indian Toll Act (Andhra Pradesh Amendment) 2002, Andhra Pradesh Road Development Corporation Act 1998, the Greater Hyderabad Municipal Corporation (GHMC) Act, the Hyderabad Metropolitan Development Authority (HDMA) Act, and the Central Motor Vehicles Act 1988, regulate Hyderabad’s fees, tolls, taxes, and parking charges. Central level agencies, such as the National Highways Authority of India (NHAI), Indian Railways, and the Airports Authority of India, which operate autonomously with limited coordination among themselves, determine tariff policies.
Multiple authorities are also involved in issuing permits and approvals for transport-related activities. For example, vehicle registration and licensing fall under the jurisdiction of State/Regional Transport Authorities, while permits for constructing transport infrastructure, such as roads, bus depots, and parking facilities, are issued by multiple agencies, including the HMDA, GHMC, State Highways Authority, and NHAI. The lack of streamlined coordination among these entities contributes to inefficiencies and delays in the development and management of urban transport systems.
Despite being mandated under the Jawaharlal Nehru National Urban Renewal Mission (JnNURM) in 2005 and reiterated by the Metro Rail Policy in 2017, only 15 cities, including Ranchi, Jamshedpur, Dhanbad, Jammu, Srinagar, Thiruvananthapuram, Kozhikode, Kochi, Bengaluru, Pune, Mumbai, Bhubaneswar, Puri, Chennai, and Hyderabad, have established UMTAs. These UMTAs vary in their structure, functions and operational effectiveness. For instance, some have been partially successful in coordinating various transport modes, while other have struggled with stakeholder conflicts and institutional and financial autonomy issues. This diversity underscores the need for a comprehensive evaluation of their performance for effective urban transport management.
The lack of streamlined coordination among these entities contributes to inefficiencies and delays in the development and management of urban transport systems.
The primary challenges of UMTAs are as follows:
Addressing these challenges is critical for UMTAs to achieve their objectives in Indian cities. A truly effective UMTA that can serve as a model for other cities has remained elusive. Several key reforms are essential to establish truly empowered UMTAs with effective functional efficiency and financial autonomy:
Without these critical reforms, the establishment of fully functional and effective UMTAs in Indian cities will remain challenging, further delaying the realisation of ISMTS.
Nandan H Dawda is a Fellow with the Urban Studies programme at the Observer Research Foundation
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Dr Nandan H Dawda is a Fellow with the Urban Studies programme at the Observer Research Foundation. He has a bachelor's degree in Civil Engineering and ...
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