Urban Transport in India Introduction 

• India’s urban centers are facing increasing challenges in managing congestion, pollution, road accidents, and inequality in access to mobility.
•  As cities expand and populations grow, the demand for better, more inclusive, and sustainable urban mobility solutions has never been more urgent. 
• Addressing these challenges is essential to creating safer, cleaner, and more equitable urban spaces.

Current State of Urban Transport in India

• Major Modes of Public Urban Transport:

• • • Buses: Buses are the primary mode of public transport in most Indian cities, serving both inter-city and intra-city travel needs. However, the bus ridership has been declining in recent years, primarily due to the growing popularity of personal vehicles and the increasing congestion on roads.
    • Metro Rail and Trains: In addition to buses, metro rail, trams, and local trains serve as important modes of public transport in large cities. For example, Mumbai, Kolkata, and Chennai have developed extensive suburban rail networks, while Delhi offers a limited suburban rail service. These systems are crucial for moving large numbers of people efficiently and sustainably.

• Intermediate Public Transport (IPT):

• • • Auto Rickshaws, Taxis, and Cycle Rickshaws: The Intermediate Public Transport (IPT) system plays a vital role in India’s urban mobility. Auto rickshaws, taxis, cycle rickshaws, and informal carpooling options are widely used, particularly in smaller towns and cities where formal public transport options are less reliable. These systems provide flexibility, though they are often criticized for contributing to congestion and pollution.

• Regional Differences in Public Transport:

• • • The availability and efficiency of public transport services vary greatly across Indian cities. While cities like Mumbai, Kolkata, and Chennai boast extensive suburban rail services, cities like Delhi offer more limited suburban rail networks, which restricts the reach and convenience of public transport. In cities without suburban or metro rail services, the dependence on buses and IPT is much higher.

• Metro Rail Systems:

• • • As of now, 17 cities in India have operational metro rail systems, including cities like Kolkata, Delhi, Chennai, Bengaluru, Hyderabad, Jaipur, Gurgaon, Mumbai, Kochi, Lucknow, Ahmadabad, Nagpur, Pune, NOIDA, Navi Mumbai, Kanpur, and Agra. Delhi has the largest metro network in India, providing a reliable and efficient means of mass transit.

• Unique Transport Systems: 

• • Kolkata is home to India’s last remaining tram system, which continues to operate as a unique mode of transport. While it is not as widespread or modernized as metro rail or buses, trams offer a nostalgic and eco-friendly option for urban mobility, especially in some parts of the city.
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Challenges Faced by Urban Transport in India

• Unprecedented Transport Growth: India has witnessed a massive surge in the number of motor vehicles over the past few decades. According to NITI Aayog, the number of registered motor vehicles increased from 5.4 million in 1981 to 210 million in 2015. This rapid rise in private vehicle ownership has been driven by the lack of a widespread and efficient public transport system in many urban areas. Consequently, Indian cities are now facing significant challenges in managing traffic congestion, pollution, and road safety.

• Inadequate Public Transport Systems: Public transport in India is grossly underdeveloped in comparison to global standards. Out of the 458 cities with populations over one lakh, only 63 have formal bus services. Moreover, the country has just 1.2 buses per 1,000 people, which is significantly lower than countries like China, which has about six buses per 1,000 people. Public transport is often overcrowded, unreliable, and poorly maintained, discouraging commuters from using it. According to a Centre for Science and Environment (CSE) study, 37% of people avoid public transport due to overcrowding, and 28% cite delays and irregular schedules as key issues. The lack of integration between different modes of transport, such as metro, buses, suburban rail, and auto-rickshaws, leads to inefficient transfers, further inconveniencing commuters. Additionally, the share of public transport is projected to decrease from 75.5% in 2000-01 to just 44.7% by 2030-31, while personal vehicle usage is expected to exceed 50%.

• Urban Pollution: India’s cities are among the most polluted in the world, with 14 out of the top 15 most polluted cities globally being located in India, according to a WHO study. Vehicular emissions are a significant contributor to the rising levels of air pollution in urban centers. Other sources of pollution, such as construction activity, road dust, and industrial emissions, also add to the deteriorating air quality. Poor public transport systems, reliant on outdated and high-emission vehicles, exacerbate the pollution crisis, affecting the health and well-being of urban populations.

• Urban Congestion: Traffic congestion has become a defining characteristic of major Indian cities such as Delhi, Mumbai, Kolkata, and Bengaluru. These cities rank among the world’s most congested, with Bengaluru recording an average vehicle speed of just 17 km/h. High congestion levels lead to significant economic losses due to reduced productivity, fuel wastage, and an increased number of accidents. The shortage of parking spaces both on and off streets in urban centers further complicates the situation, contributing to the chaos and inefficiency in urban transport systems.

• Road Safety and Traffic Fatalities: India’s roads are among the deadliest in the world, with over 172,000 deaths reported in 2023—an average of 474 fatalities daily. Poor road infrastructure, unsafe vehicles, reckless driving, and lack of traffic management are key contributors to this crisis. In addition to these factors, overcrowding in vehicles and poor road conditions exacerbate the problem, making India’s roads a significant safety hazard.

• Equity and Access to Mobility: Unplanned urbanization in India has led to gentrification of city centers, pushing lower-income groups into peripheral suburbs. This has resulted in longer commutes, with people from these communities spending more time and money on transportation. A CSE study found that Delhi Metro is the second most unaffordable metro system in the world (after Hanoi), with lower-income groups spending up to 22% of their monthly income on metro fares. Public transport costs are disproportionately high for these segments, making it difficult for them to access essential services and opportunities.

• Mobility Challenges for Women: Safety concerns are the single biggest factor limiting women’s mobility in Indian cities. According to Action Aid UK, 79% of women in major Indian cities report having been harassed on the streets. Overcrowding in public transport systems, particularly in cities like Delhi and Mumbai, adds to the insecurity women face while commuting. The lack of proper security measures and harassment in public transport systems further limits women’s access to mobility and affects their ability to participate fully in economic and social activities.

Government Initiatives to Address Urban Transport Issues in India

• Jawaharlal Nehru National Urban Renewal Mission (JNNURM) – 2005

• Launched in 2005 and concluded in 2014 (now succeeded by the Atal AMRUT Mission), the Jawaharlal Nehru National Urban Renewal Mission (JNNURM) was a landmark initiative focused on improving urban infrastructure, including public transport systems.

•  Under this mission, significant funding was allocated for the procurement of public transport buses, development of city mobility plans, and enhancing transport infrastructure in larger cities. This initiative laid the groundwork for improving urban transport and provided a model for subsequent projects.

• National Urban Transport Policy (NUTP) – 2006

• • • The National Urban Transport Policy (NUTP), introduced in 2006, aims to create safe, affordable, quick, comfortable, reliable, and sustainable urban transport systems.
    •  This policy emphasizes the importance of establishing quality-focused, multi-modal public transport systems that integrate buses, metro rail, bicycles, and pedestrian infrastructure. NUTP strives to reduce dependence on private vehicles and promote cleaner, more efficient transportation options in Indian cities.

• Green Urban Transport Scheme – 2016

• • • Launched in 2016, the Green Urban Transport Scheme focuses on creating non-motorized transport infrastructure to encourage cycling and walking. 
    • Key components of the scheme include the development of dedicated cycling lanes and pedestrian pathways, promoting public transport access, and integrating clean technologies such as electric vehicles and intelligent transport systems (ITS). By reducing reliance on motorized transport, this scheme aims to mitigate urban air pollution and reduce traffic congestion.

• Mass Rapid Transit Systems (MRTS)

• • • The Mass Rapid Transit Systems (MRTS), particularly metro rail, have emerged as the favored alternative for mass transit in Indian cities. In 2017, the Indian government introduced a new Metro Policy, aimed at improving collaboration between the central and state governments, streamlining the standardization of metro norms, and creating more efficient financing mechanisms. 
    • The policy also sought to establish better procurement systems for metro projects, ensuring faster and more effective implementation. The metro systems in cities like Delhi, Bengaluru, and Hyderabad have become essential components of urban mobility.

• Bus Rapid Transit System (BRTS)

• • • The Bus Rapid Transit System (BRTS) is an innovative transport system designed to segregate bus movement from other modes of traffic. BRTS systems introduce specific changes to road infrastructure to improve safety and efficiency.
    •  This system is a critical component of the Atal Mission for Rejuvenation and Urban Transformation (AMRUT), aimed at rejuvenating urban transport in Indian cities. Cities like Ahmedabad, Pune, and Indore have successfully implemented BRTS, demonstrating its effectiveness in reducing congestion and improving public transport reliability.

• National Transit-Oriented Development Policy – 2017

• • • The National Transit-Oriented Development (TOD) Policy, introduced in 2017, encourages the development of urban spaces around mass transit corridors such as metro, monorail, and BRTS systems. 
    • This policy aims to create more livable and walkable urban spaces by promoting mixed-use developments that integrate housing, commercial spaces, and transport hubs. TOD is essential for improving accessibility and reducing the dependency on personal vehicles, thereby making urban mobility more sustainable.

• Sustainable Urban Transport Project (SUTP)

• • • In collaboration with the Ministry of Urban Development and the United Nations Development Programme (UNDP), the Sustainable Urban Transport Project (SUTP) aims to promote environmentally sustainable transport solutions. 
    • The project supports the implementation of cleaner technologies and integrated transport systems that minimize environmental impact. SUTP also assists local governments in planning and financing urban transport projects that are both socially inclusive and environmentally friendly.

• Personal Rapid Transit System (PRT)

• • • The Personal Rapid Transit (PRT) System is an innovative solution for urban mobility, using automated pods that travel on dedicated guideways. In 2017, the National Highway Authority of India (NHAI) called for expressions of interest to develop India’s first driverless pod taxi systems, designed to run on a 70 km stretch between Dhaula Kuan in Delhi and Manesar in Haryana.
    •  This system is intended to provide a clean, efficient, and convenient means of transport for shorter urban trips, reducing road congestion and promoting sustainable mobility.

• National Public Bicycle Scheme (NPBS)

• • • Introduced in 2011, the National Public Bicycle Scheme (NPBS) aims to establish cycle-sharing systems across India. The first successful public bicycle-sharing (PBS) initiative, Trin Trin, was launched in Mysuru. The goal of the NPBS is to create bicycle-friendly infrastructure and encourage the use of non-motorized transport as part of urban mobility solutions. 
    • This initiative plays an essential role in reducing congestion and providing an affordable and eco-friendly mode of transport.

• Promotion of Electric Vehicles (EVs)

• • To promote clean mobility, the Indian government has set an ambitious target of having an all-electric vehicle fleet by 2030. Under the Faster Adoption and Manufacturing of (Hybrid &) Electric Vehicles (FAME) scheme, the government offers subsidies and incentives for the purchase of electric buses, two-wheelers, and the development of charging infrastructure. 
  • These efforts aim to reduce reliance on fossil fuels, lower emissions, and make electric mobility more accessible to the public.

Institutional Challenges in India’s Urban Transport Sector

• Gaps in Laws and Regulations: One of the most significant institutional challenges is the lack of comprehensive laws and regulations governing urban transport in India. While various laws, such as the Motor Vehicles Act, 1988, address road safety and vehicle management, they are not well-suited to handle the increasing demands of modern urban transport systems. Moreover, the weak enforcement of existing regulations has failed to manage the rapid motorization of Indian cities, contributing to congestion, pollution, and traffic accidents. 

• Poor Institutional Framework and Coordination: The urban transport sector in India is managed by a patchwork of multiple agencies operating at the central, state, and local government levels. This fragmented structure often leads to poor coordination and makes it difficult to assign accountability for transport projects. Each agency has its own mandates and priorities, but there is little synergy between them. 

• • • In Delhi, the responsibility for urban transport is divided among several agencies: the Delhi Metro Rail Corporation (DMRC) handles metro projects, the Delhi Transport Corporation (DTC) oversees buses, and the Public Works Department (PWD) is responsible for road infrastructure. This division creates overlapping duties and delayed decision-making, as projects often require approval from multiple agencies. 
    • For instance, the implementation of dedicated bus lanes in Delhi faced delays because of disagreements between the DTC and the PWD on project execution and funding responsibilities.

• Land Acquisition Challenges: The development of urban transport infrastructure in India is often hindered by the high cost of land acquisition and the lengthy approval processes involved. Land acquisition remains a significant barrier, especially in dense urban areas where space for new infrastructure projects is limited. For example, the East-West Metro Corridor Project in Kolkata has faced significant delays due to land acquisition issues. These delays increase project costs and hinder timely completion. 

• Human Resource Challenges: Another critical issue is the lack of skilled professionals in the urban transport sector. Many city and state-level officials lack the technical expertise needed to effectively plan, implement, and manage urban transport projects. This skills gap affects the quality and speed of transport project execution. 

• • • A good example of the human resource gap is seen in the implementation of Bus Rapid Transit System (BRTS) and metro projects in cities like Bhopal and Jaipur. In Bhopal, the BRTS project was delayed by more than 2 years due to difficulties in urban planning, particularly the lack of trained transport planners and engineers. According to the Centre for Science and Environment (CSE), 50% of BRTS projects in India face implementation challenges due to insufficient expertise among city officials and transport managers.

• Absence of Reliable Transport Data: A major barrier to effective urban transport planning is the lack of reliable and standardized transport data. Without proper data, it becomes difficult to assess the impact of ongoing government initiatives and to create a robust urban transport plan. 

• • For example, the Odd-Even Scheme in Delhi, which limits the number of private vehicles on the road based on their license plate numbers, has faced challenges in evaluating its effectiveness because there was no comprehensive system for tracking long-term impacts on pollution or traffic flow. The lack of real-time data on traffic volume and vehicle emissions has made it harder to assess whether the scheme’s restrictions are adequately reducing pollution or simply shifting traffic patterns.
• Delays in Fund Allocation and Release: Urban transport infrastructure projects are often capital-intensive and require significant funding. However, the delayed release of funds has been a recurring issue. These projects have long gestation periods, meaning funds are often tied up for extended periods. This creates challenges in accessing and utilizing the required funds in a timely manner, which can affect both the completion and maintenance of transport projects. 
  • According to the Delhi Metro Rail Corporation (DMRC), Phase 4 of the project, which was expected to be completed by 2021, was supposed to be funded under the Delhi government’s share, but budget allocations have been delayed, stalling work on key parts of the extension.

NITI Aayog’s Recommendations for Urban Mobility

• NITI Aayog has proposed an actionable framework aimed at revolutionizing urban transport. The vision outlined focuses on creating a Clean, Convenient, and Congestion-free (3C) mobility system that is safe, sustainable, and accessible. 

• Connect Bharat:  NITI Aayog emphasizes the creation of Safe, Adequate, and Holistic Infrastructure (SAHI) for all segments of the population, including women, the elderly, and those with disabilities. Key recommendations include:

• • • Enhanced safety and accessibility across urban transport systems.
    • Leveraging multiple transport modes, such as road, rail, coastal and inland waterways, small regional airports, and ropeways, to provide more diverse and integrated mobility options.
    • Data-driven decision-making, using mobility data to optimize urban transport planning and infrastructure.

• Optimize Travel Footprint: To alleviate urban congestion and enhance the movement of both passengers and goods, NITI Aayog proposes:

• • • Integrated land use: Planning residential and commercial areas in a way that minimizes travel time and reduces congestion.
    • Focused policy measures to optimize travel, including data-based initiatives such as intelligent transport systems (ITS).
    • Collaboration of transport systems and integration across modes of transport to enhance efficiency.

• Promote Seamless Public Transport: Public transport is crucial for reducing urban air pollution and congestion. NITI Aayog advocates for:

• • • Data-driven urban transport planning with a clear hierarchy among modes of transport, ranging from non-motorized transport (e.g., walking and cycling) to public transport and private vehicles.
    • Focus on multi-modal systems that connect various transport modes seamlessly.
    • Ensuring that public transport is affordable, comfortable, and accessible, to encourage wider adoption by urban residents.

• Adoption of Green Modes and Technologies: NITI Aayog stresses the importance of rapidly adopting electric vehicles (EVs) and non-motorized transport (NMT). Key recommendations include:

• • • Planning non-motorized transport routes that integrate seamlessly with public transport systems.
    • Ensuring safety for NMT users, including dedicated traffic signals and clear guidelines for NMT infrastructure.
    • Promoting clean technologies such as electric vehicles and ensuring the development of supporting infrastructure, including charging stations and domestic manufacturing.

• Strategic Enablers for Effective Execution: To ensure the successful implementation of these initiatives, NITI Aayog recommends focusing on key strategic enablers:

• • Skill development to address the growing demand for skilled professionals in urban transport planning and implementation.
  • Intelligent Transport Systems (ITS) to utilize ongoing technological advancements for more efficient and connected transport networks.
  • A well-defined governance mechanism involving multiple stakeholders to streamline policy execution and reduce delays.
  • A public awareness campaign to increase understanding of sustainable transport options and encourage their adoption.

Global Best Practices in Urban Mobility

• Singapore: A World Leader in Public Transport

• • • According to a 2018 McKinsey report, Singapore has one of the most efficient and affordable public transport systems globally. Approximately 80% of all trips in Singapore are made via public transport, including buses, MRT (Mass Rapid Transit), and LRT (Light Rail Transit). Singapore has implemented several key strategies:
    • Area licensing systems, vehicle quota systems, and congestion pricing to reduce the number of private cars and promote public transport.
    • The introduction of incentives for commuters, such as rewarding those who shift their travel to off-peak hours, reducing overcrowding.

• Mexico City: Right to Mobility

• • • In 2014, Mexico City passed a law explicitly guaranteeing the right to mobility, aiming to expand urban mobility through sustainable transport options. Key elements of this initiative include:
    • Establishing a mobility hierarchy that prioritizes pedestrians and cyclists over motorists.
    • Prioritizing active transport and ensuring that infrastructure and policies support walking and cycling.

• Best Practices in India: Ahmedabad’s BRTS

• • India has also made strides in improving urban mobility. The Ahmedabad BRTS system stands out as an example of successful urban transport innovation. Key features include:
  • The Integrated Transportation Management System (IMTS), which includes vehicle tracking, fleet management, automatic fare collection, and passenger information systems.
  • CNG buses to reduce emissions.
  • Safe and secure BRT bus stops, with clear signage, route details, and passenger information.

Way Forward

• Improved Coordination Among Transport Agencies: A key challenge in India’s urban transport system is the lack of coordination among various agencies. There is an urgent need for better cooperation between central, state, and local agencies, along with the integration of transport and land-use policies.

• Augmenting Mass Transit and Reducing Private Car Usage: To alleviate urban congestion and air pollution, there is a need to enhance the capacity of mass transit systems. Measures to discourage private car usage, such as parking policies, low-emission zones, taxation measures, and congestion pricing, should be enforced.

• Addressing Safety and Gender Mobility: Ensuring safe infrastructure and addressing the challenges of low mobility for women is crucial. Gender-sensitive transport policies, including dedicated seats, safety measures, and emergency helplines, should be implemented to improve accessibility for women.

• Promoting Non-Motorized Transport (NMT): There should be a focus on encouraging non-motorized transport for short distances. Pedestrian zones, bike lanes, and bike-sharing schemes—similar to those in Amsterdam and Paris—should be promoted to ensure safer travel options.

• Multi-Modal Connectivity for Convenience: To facilitate seamless commuting, a unified smart card system for multi-modal connectivity can be implemented. This system, like London’s Oyster card, would enable commuters to shift between different modes of transport with minimal delays and effort.