Contractual Correspondence as Governance: Examining Incomplete Contracts, Authority, Control and Accountability in National Highways PPP Projects in India

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Contractual Correspondence as Governance: Examining Incomplete Contracts, Authority, Control and Accountability in National Highways PPP Projects in India

Champaka Rajagopal, Krishna Nistala

October 29, 2026

The paper examines how contractual correspondence shapes governance and dispute resolution in India’s highway Public–Private Partnerships (PPPs). Drawing on correspondence from 15 disputed projects, it argues that letters, notices and clarifications are not merely administrative records but key tools through which authority, risk and accountability are negotiated. Weak correspondence practices, including ambiguity, fragmented authorship, excessive communication and poor institutional memory, can escalate routine disagreements into formal disputes, leaving substantial capital locked in claims. The paper argues that structured communication workflows, clear escalation mechanisms and stronger institutional memory can facilitate early resolution, reduce disputes and support sustained infrastructure investment.

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January 17th, 2024

On 10th January 2024, CPR received a notice from the Ministry of Home Affairs cancelling its FCRA status. The basis of this decision is incomprehensible and disproportionate, and some of the reasons given challenge the very basis of the functioning of a research institution. This includes the publication on our website of policy reports emanating from our research being equated with current affairs programming.

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From the President, CPR

Working Papers

Contractual Correspondence as Governance: Examining Incomplete Contracts, Authority, Control and Accountability in National Highways PPP Projects in India

Champaka Rajagopal, Krishna Nistala