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STATUS PAPER ON ROAD SAFETY IN INDIA 1. NATIONAL STATISTICAL TRENDS IN ROAD ACCIDENT Transport Research Wing (TRW) of the Ministry of Road Transport & Highways (Government of India) collects information on Road Accidents from States in a 19 item format devised under Asia Pacific Road Accident Data (APRAD) / Indian Road Accident Data (IRAD) project of the UNESCAP. These data are analyzed and an annual publication titled Road Accidents in India is released every year. The latest issue of the publication for the year 2009 was released in April 2011. It gives data on road accidents and related parameters including factors causing road accidents for all States. The data used in the publication are based on returns submitted by the Police Departments of respective State Governments. TRW also collects and compiles data on registered motor vehicles from States and publishes in Road Transport Year Book (RTYB). The latest issue of RTYB comprises data upto 31st March, 2009. 1.1 The following tables indicate the total number of road accidents, persons killed and injured in the country on all roads vis--vis National Highways: Table I Year Total No. No. of Road Accidents on of Road Accidents National Highways 439255 460920 479216 484704 486384 129994 140158 138922 137995 142511 Total No. of No. of Persons Persons Killed on Killed National Highways 94968 35439 105749 39820 114444 40612 119860 42670 125660 45222 Total No. of Persons injured 465282 496481 513340 523193 515458 No. of Persons Injured on National Highways 145582 152807 154880 149693 152816

2005 2006 2007 2008 2009

Total no. of pedestrian deaths during 2009 Motorcyclist / 2 wheeler deaths during 2009 Total no. of Motorcycles / 2 wheelers (2009) Motorcyclist / 2 wheeler deaths per 10,000 motorcycle Total no. of Regd. Cars (2009) Total no. of Buses and Tracks (2009) Total no. of 3 wheelers (2009)

15,983 19,728 82,402,105 2.4 12,365,806 4,553,351 1,756,368

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Table 2 Number of Accidents, persons killed & injured as per road classification (2009) Road Classification No. of Accidents No. of Persons Killed No. of Persons Injured National Highways 486384 142511 (29.30) 125660 45222 (35.99) 515458 152816(29.65) Total State Highways Other Roads 115992(23.85) 34093(27.13) 131517(25.51) 227881(46.85) 46345(36.88) 231125(44.84)

Note: Figures within parenthesis indicate share in total accidents, killed and injured in the respective road categories. 1.2 During the year 2009, there were around 4.9 lakh road accidents, which resulted in deaths of 1,25,660 people and injured more than 5 lakh persons in India. These numbers translate into one road accident every minute, and one road accident death every four minutes, for India. 1.3 The details of total number of persons killed per day, persons killed per hour , road accidents per day and road accidents per hour in the country during the period 2006-2009 are given in the Table below: Years Total Persons Killed 105749 114444 119860 125660 Persons Killed per day 290 314 328 344 Persons Killed per hour (approx) 12 13 14 14 Total No. of Road Accidents 460920 479216 484704 486384 Road Accidents per day 1263 1313 1328 1332 Road Accidents per hour (approx) 53 55 55 56

2006 2007 2008 2009 1.4.

Causes of Road Accidents 78.5% 2.2% 1.2% 1.3% 1.8% 0.8% 14.2%

Fault of driver Fault of pedestrian Fault of cyclist Defect in road conditions Defect in condition of motor vehicle Weather condition All other causes

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1.5. COST OF ROAD ACCIDENTS: Estimate by the Working Group set up by Planning Commission in the year 2000 chaired by Shri Prakash Narain, Former Secretary, MoST Rs. 55,000 crores (2000 prices), i.e. 3% of GDP. As per the world report on road traffic injury prevention by World Bank and WHO, the cost of road crash injuries is estimated at roughly 1% of Gross National Product (GNP) in low income countries, 1.5% in middle income countries and 2% in high income countries. 1.6. INTERNATIONAL COMPARISON

Cross country comparisons of incidence of road accident related deaths and injury accidents per lakh persons as per World Road Statistics 2009 (published by International Road Federation, Geneva) shows lower incidence of both the parameters for India in comparison to many developed and developing countries. The number of road accident deaths per lakh of population which is 10.5 in India is much lower compared with 12.72 in Korea and 13.68 in USA . The highest number of deaths per lakh of population was reported for Anguilla (31.25) in 2007. Similarly, injury accidents per lakh of population for both India and China were substantially lower at around 36.69 and 24.82 respectively compared to U.K. (298.54), U.S.A. (579.68), France (131.75), Germany (408.23) etc. The highest figure was reported by Jordan (1934.48) in 2007. Nigeria (6.31) in 2006 and Australia (6.98) in 2007 reported the lowest figures in respect of injury accidents per 100000 persons.

2. CURRENT NATIONAL GOVERNMENT POLICY 2.1. NATIONAL ROAD SAFETY COUNCIL (NRSC)

NRSC is the apex body for road safety established under Section 215 of Motor Vehicles Act 1988. It is chaired by Minister (RT&H) and Ministers-in-charge of Road Transport of States/UTs, DG Police of all States and representatives from the Ministries/Departments such as Home Affairs, Human Resource Development, Railways, Industry, Petroleum & Natural Gas, Environment & Forests, Health & Family Welfare etc. are official members. There are 25 non-official members. Decisions have been taken to strengthen NRSC. Section 215 of the Motor Vehicles Act also provides setting up of State Road Safety Councils and District Road Safety Committees. The Ministry has requested all State Governments for setting up of State Road Safety Council and District Road Safety Committees and hold regular meetings in this regard. Most of the action for Road Safety lies at the State level where enforcement,
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traffic engineering, rescue and relief measures have to be directed purposefully towards achieving targeted road safety goals. 2.2 MEASURES TAKEN TO MINIMIZE ACCIDENTS The main thrust of accident prevention and control across the world has been on 4 Es, vis. (i) Education, (ii) Enforcement, (iii) Engineering and (iv) Environment and Emergency care of road accident victims. The Government of India has been focusing on all these four approaches in its policies and programmes. As per the deliberations in the last meeting of the National Road Safety Council, held on 25th March 2011 the Ministry of Road Transport & Highways formed five separate working groups on four Es of Road Safety viz. (i) Education (ii) Enforcement (iii) Engineering (roads as well as vehicles) and (iv) emergency care which would deliberate in detail and submit their recommendations on short term and long term measures for immediate implementation so as to curb road accident in the country. These Working Groups have been tasked to deliberate in detail and submit their recommendations on short term, long term measures for immediate implementation so as to curb road accident in the country.

2.3 NATIONAL ROAD SAFETY POLICY A Committee was constituted in the year 2005 to deliberate and make recommendations on creation of a dedicated body on road safety and traffic management. The Committee was also subsequently requested to finalise a draft National Road Safety Policy for consideration of the Government. The Committee while submitting its report in February, 2007 inter alia, recommended a draft National Road Safety Policy. The Union Cabinet in its meeting held on 15.03.2010 has approved the proposal of the Ministry to adopt the National Road Safety Policy. The National Road Safety Policy outlines the policy initiatives to be framed / taken by the Government at all levels to improve the road safety activities in the country. Broadly, it aims at:

To promote awareness about road safety issues. To establish a road safety information database. To ensure safer road infrastructure by way of designing safer roads, encouraging application of Intelligent Transport System etc. To ensure fitment of safety features in the vehicles at the stage of designing, manufacture, usage, operation and maintenance. To strengthen the system of driver licensing and training to improve the competence of drivers. To take measures to ensure safety of vulnerable road users. To take appropriate measures for enforcement of safety laws. To ensure emergency medical attention for road accident victims.
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To encourage human resource development and R&D for road safety. To strengthen the enabling legal, institutional and financial environment for promoting road safety culture in the country.

2.4 NATIONAL ROAD SAFETY AWARENESS CAMPAIGNS AND TRAINING PROGRAMMES CARRIED OUT 2.4.1 PUBLICITY MEASURES AND AWARENESS CAMPAIGN ON ROAD SAFETY: With a view to raise road safety awareness among the general public, the Government have been undertaking various publicity measures through DAVP and professional agencies in the form of telecasting/broadcasting of T.V. spots/Radio jingles, display of cinema slides, hoardings, organizing Road Safety Week, Seminars, Exhibitions, All India Essay Competition on Road Safety, printing of handbills/stickers, posters, etc., containing road safety messages for various segments of road users viz. Pedestrians, cyclists, school children, heavy vehicle drivers, etc. painting on road railings on themes of road safety, road safety games, calendars depicting road safety messages, etc. During the year 2011-12, there is provision of Rs.45.00 crore under this head. The tender for print media has been floated and evaluation of technical bids will be done shortly. 2.4.2 REFRESHER TRAINING FOR HEAVY VEHICLE DRIVERS: The Ministry of Road Transport & Highways has a scheme titled Two days refresher training to heavy motor vehicle drivers in unorganized sector to inculcate safe driving habits and to acquaint the drivers with the rules on roads. The Ministry intends to train around 80,000 drivers during the current financial year i.e. 2011-12 through Society of Indian Automobile Manufacturers (SIAM), All India Motor Transport Congress (AIMTC), Automobile Association of Upper India, Training Institute on Driving and Research Bellary, Karnataka, etc.

2.4.3 SETTING UP OF MODEL DRIVING TRAINING SCHOOL: The Ministry of Road Transport & Highways (MoRT&H) was earlier operating a scheme for providing financial assistance to the States to set up model Driver Training Schools in the Tenth Five Year Plan and 13 Schools were sanctioned under the scheme. However, the scheme was dropped in the Eleventh Five Year Plan on ground that it was a Central sponsored scheme. Keeping in view the need for setting up of such Schools as well as the need for developing institutional mechanism to provide training to trainers to provide quality training to the drivers, a revised scheme was formulated by the Ministry. The revised scheme for setting up of model driving training school has been circulated to the States/UTs in October, 2010 inviting proposals from them. Under the revised scheme 10 schools with an estimated amount of Rs. 140 crore (US $ 31 Mn) are proposed to be
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set up during the 11th Five Year Plan. So far, sanction has been accorded by the Ministry for setting up of 7 institutes of driving training and research namely Himachal Pradesh, Madhya Pradesh, Rajasthan, Maharashtra, Gujarat, Haryana and Tamil Nadu. The Ministry is also in process of sanctioning 3 more such institutes in the current financial year. 2.5 CREATION OF A DEDICATED BODY ON ROAD SAFETY AND TRAFFIC MANAGEMENT In order to have a dedicated body on road safety and traffic management, the MoRT&H had introduced a Bill in the Parliament on 04.05.2010 to set up the National Road Safety and Traffic Management Board. As per the Bill, the Board was proposed to be entrusted with the responsibility of recommending standards for design, construction and maintenance of highways, safety standards for motor vehicles, issue guidelines for various aspects concerning road safety, promote capacity building in road safety, streamline data collection and analysis system etc. The Bill also seeks to create a National Road Safety and Traffic Management Fund for providing an independent source for the Board to carry out its road safety activities. The Parliamentary Standing Committee submitted its report on the Bill to Deputy Chairman, Rajya Sabha on 21.07.2010. The Committee made the various observations and recommended that the present Bill may be withdrawn and the Government should come out with a comprehensive legislation with holistic perspective that addresses the entire gamut of road safety. The matter is presently under consideration of the MoRT&H.

2.6.

EXPENDITURE ON ROAD SAFETY For the Eleventh Five Year Plan (2007-12) an amount of Rs.448 crore has been proposed for road safety activities, excluding the amount proposed for creation of National Road Safety Board. The year-wise expenditure on road safety during the last five years is as under:Year Total Allocation Expenditure (in Rs. crore) 40 43 47 52 73 79 180 514 (in US $ Mn) 9 10 10 12 16 18 40 114 (Rs. in crore) 35 30 43 43 55 22 58 286 (in US $ Mn) 8 7 10 10 12 5 13 64
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2004-05 2005-06 2006-07 2007-08 2008-09 2009-10 2010-11 2011-12

3.1

STEPS TAKEN BY CENTRAL GOVERNMENT TO IMPROVE ROAD SAFETY

The safety of road users is primarily the responsibility of the concerned State Government. However, this Ministry has taken several steps to improve road safety for road users which are as under: stage. It is ensured that road safety is the integral part of road design at planning

Various steps to enhance road safety such as road furniture, road markings/road signs, introduction of Highway Traffic Management System using Intelligent Transport System, enhancement of discipline among contractors during construction, road safety audit on selected stretches, have been undertaken by National Highways Authority of India. Refresher training to Heavy Motor Vehicle drivers in the unorganized sector being implemented by the Ministry since 1997-98 under plan activities. Setting up of Driving Training School in the States by Ministry of Road Transport and Highways. Publicity campaign on road safety awareness both through the audio-visual and print media by Ministry of Road Transport and Highways. Conferment of National Award for voluntary organizations/individual for outstanding work in the field of road safety. Tightening of safety standards of vehicles like Seat Belts, Power-steering, rear view mirror etc. Providing cranes and ambulances to various State Governments/NGOs under National Highway Accident Relief Service Scheme. National Highways Authority of India also provides ambulances at a distance of 50 km on each of its completed stretches of National Highways under its Operation & Maintenance contracts. Widening and improvements of National Highways from 2 lanes to 4 lanes and 4 lanes to 6 lanes etc. 3.2 National Highway Accident Relief Service Scheme (NHARSS): The scheme entails providing cranes and ambulances to States/ UTs/NGOs for relief and rescue measures in the aftermath of accidents by way of evacuating road accident victims to nearest medical aid centre and for clearing the accident site. So far, 347 Ten ton cranes and 106 small/medium size cranes have been sanctioned under the scheme. 579 ambulances have been sanctioned to States/UTs/NGOs under the scheme. During 2011-12, 30 cranes, 30 ambulances and 20 small/medium sized cranes are proposed to be provided.

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3.3

NATIONAL HIGHWAYS AUTHORITY OF INDIA (NHAI) AND INDIAN ROADS CONGRESSS PLANNING TO DESIGN ROADS ON THE BASIS OF A REGION-SPECIFIC SURVEY

NHAI is a Central Government Agency for implementation of major flagship scheme for development of National Highways (NHs) in India, viz. National Highways Development Project (NHDP). NHAI follows Indian Road Congress specifications in the design of highways. Traffic study is carried out by the consultant at the time of preparation of feasibility report /DPR. The consultant proposes a variety of measures like improvement of junctions, provision of underpass/over bridges, pedestrian crossings etc. from the safety perspective. Also, region specific requirements are provided for under IRC codes. The geometric design of highways factor in variations in terrain, material, traffic, etc. Indian Roads Congress (IRC) is engaged only in preparation of Standards, Codes of practice and guidelines for the planning, design, construction, operation & maintenance of roads and bridges in the country and not involved in design, construction and maintenance of roads. 3.4 Establishment of Trauma Care Facilities on National Highways (Sponsored by M/o Health & Family Welfare) An integrated network of Trauma Centres along the GQ, NS & EW Corridors of NHs to be set up by upgrading the trauma care facilities in 140 Hospitals (20 to Level I Trauma Centres; 40 to Level II Trauma Centre and 80 to Level III Trauma Centre) at a total cost of Rs.732.75 crore ( US $ 0.16 Bn) Will ensure accident victims competent medical assistance within the shortest possible time. After evaluation of the project, other NHs with substantial traffic density to be taken up. Role of MoRTH and NHAI: NHAI to deploy life support ambulances with trained and specialized manpower at every 50 km on the completed stretches of Highway being built and operated by them. MoRTH to provide advanced life support ambulances to 140 identified hospitals to be upgraded under this Scheme. 70 ambulances already provided. Balance 70 to be provided during 2011-12. 3.5 Recent Scheme of providing Road Safety Equipments: M/o RT&H provides road safety equipment to States for enforcement of road safety related rules & regulations.

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So far 24 Interceptors sanctioned for the purpose of detection of violation of rules by the road users such as over-speeding, drunken driving, lane jumping, dangerous driving etc. Tender floated for procurement of Interceptor, Speed detection radar and Breath Analyzer to be given to the States.

3.6

Incident Management : Incident Management System (IMS) with complete statistics of incidents is maintained by O & M Contractor at PIU/CMU level. The O & M agency co-ordinates with different agencies like traffic police, hospitals, fire department for immediate emergency response. The incident management centers are in operation continuously on a 24 hours basis with facilities such as Route Patrol @ every 50 km Ambulances @ every 50 km (at present total 186 nos. provided) Medical and traffic aid posts at toll plazas (under PPP Projects) Cranes at toll plazas (15 MT to reach within 30 min of incidence)

3.7 SETTING UP FOR VEHICLES

MODEL

INSPECTION

AND

CERTIFICATION

CENTRES

The Fitness tests of motor vehicles, being carried out presently are visual, completely non-mechanised and nothing but subjective evaluation by the inspecting officer. The prescribed tests are more of routine nature rather than fulfilling any meaningful exercise. In use vehicles, therefore, require focused attention in the wake of worsening road accident scenario and environmental pollution. The MoRT&H intends to put in place a suitably designed Inspection and Certification system throughout the country for rigorous inspection of motor vehicles and to remove the defects before they are allowed to ply on road. Accordingly, a model of automated Inspection & Certification centre was designed and a scheme for setting up of 10 such Centres in 10 States on a pilot basis was approved. These centres will serve as technical centres for testing the roadworthiness of transport vehicles after evaluation of various identified parameters in a scientific manner. 8 Proposals have already been sanctioned.

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In the 12th Plan (2012-17), the Ministry intends to set up one such automated centre in all the States/UTs who could replicate the model centres in other parts of the States/UTs. After having a firsthand experience of running these Centres for one or two years we intend to upscale the scheme on PPP basis to set up more such centres in the entire country. 3.8 INITIATIVES FOR ROAD SAFETY ACTIVITIES

Safety Measures are in-built in the projects during Design, Construction and O&M. (a) The project designs, while meeting the Safety Standards, provide for various measures to enhance the Road Safety like segregation of local and through traffic by constructing flyovers, underpasses, bypasses, service roads etc.; user facilities like bus/truck lay by, wayside amenities; safety features like road markings, signages, crash barrier, raised pavement markers, delineators, lighting in urban areas/bridges/flyovers, speed retarders on cross roads at junction etc.; and pedestrian facilities like zebra crossings, pedestrian underpasses, foot over bridges, pedestrian guardrails etc. (b) During construction, it is prescribed in the conditions of contract/specifications to provide in Construction Zones signages, barricades, delineations during day and night etc.; to take care of safety of workers like personal protection equipment (reflective jackets, helmets, gloves, gumboots spectacles etc.), first-aid equipment and amenities etc. (c) During O&M: Tow away vehicles for removing the breakdown/damaged vehicles, ambulances to provide immediate first-aid during golden hour to the accident victims and subsequent transfer of the accident victim to the nearest hospital/trauma care centre, route patrolling vehicles to check unauthorized activities/guide the road users. These facilities are available at every 50 km of sections of operation on an average. Ministry of Health& Family Welfare is implementing a comprehensive scheme for upgrading Trauma Care Centre along GQ and North South & East West Corridors. State-of-the-Art Advanced Traffic Management System (ATMS) comprising of emergency call boxes, variable messages signs, CCTVs, traffic counters cum classifiers, etc. has been provided/ being provided on selected sections mostly under NHDP Phase V. A Road Safety Cell has been created within NHAI. One Safety Officer has been designated in each Regional Office of NHAI to oversee the safety measures during construction and O&M of project reaches. Road Safety Cell, NHAI has issued Work Zone Safety Guidelines for all NHAI projects and also done Safety Audit of some stretches of National Highways. Road Safety Cell has also carried out public awareness programme for educating the Road User on Delhi-Mumbai, Mumbai-Chennai and Delhi-Kolkata arms of GQ. Comprehensive Road Safety Manual has been prepared and hosted on NHAI website www.nhai.org.

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Safety Audit Completed by NHAI

12 World Bank Projects of Lucknow Muzafarpur National Highway Project (LMNHP) (483 km) completed in April 2010. Reports sent to projects sites for implementation. Western and Southern corridors (2825 km) completed in 2005. Safety Audit conducted through CRRI on Various NHAI Projects (1569 km). Safety audit in progress / recently awarded. Safety Consultants Appointed for PPP Projects (DBFO) & Audit commenced (544 km): Gurgaon-Jaipur, (226km): Surat-Dihsar,(239km): Chikaluripet Vijaywada (79km) Safety consultancy recently awarded for 53 DBFO projects (4820 km) all over the country. Bids for appointment of Safety consultant for 26 packages of PPP Projects on DBFO basis (2222 km) invited for Safety Audit during design, and construction stage. Road Safety Public Education Experience both in India and elsewhere shows that such increase in speed and traffic often lead to more severe accidents, and at times also an increased number of accidents. Considering the need to address the road safety issues, part of the World Bank loan was utilized to design and implement an effective public communication strategy for enhancing road safety awareness among drivers and other road users by undertaking consulting service for road safety public education. This service was designed to reduce the risk of accidents through raising the awareness among local inhabitants and road users of National Highways of the Golden Quadrilateral (GQ) of about 5,864 km that links the main metropolitan centres of Delhi, Kolkata, Chennai and Mumbai; The objectives of service were: (i) (ii) (iii) (iv) Make community residents aware that road safety is a major community concern; Encourage community residents to identify the specific road safety problems faced by the community as well as remedial measures; Strengthen local Non Government Organizations (NGOs) and Community Based Organizations (CBOs) and their linkages to external institutions with a role in road safety; and Educate community residents and road users in the safe use of the road and actions to be taken in the event of an accident.

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Current initiatives for public education As part of public education it has been decided that Media Public Education Campaign will be done on 3039 km stretches as a part of Consultancy for selection of Media Agency to design and implement PUBLICITY CAMPAIGN for Road Safety and HIV AIDS. The goal of this service is to reduce the risk of traffic accidents in the project area through raising the awareness among local residents and the users of National Highways Network of Accidents are to be prevented before, during and after upgrading the National Highways the objectives of this service are to: OTHER ACTIVITIES OF ROAD SAFETY CELL, NHAI Road Safety Cell, NHAI has initiated following Road Safety activities through World Bank Loan. Under LMNHP World Bank Ln No: 4764-IN (under procurement). Appointment of Road Safety Advisor under World Bank Scheme for Road Safety Cell, is under procurement, (US$ 750000) to assist to NHAI to build capacity of RSC on all safety-related aspects at all stages of highway development. The broad scope of work of the Road Safety Advisor shall include but not be limited to review the current system, procedures and delegation to RSC; make recommendations to strengthen RSC functioning within NHAI including drafting of detailed procedures, delegations and resources required and; train and support RSC to implement the same. His tenure will be for two year initially and extendable with mutual agreement. Monitoring of Project Outcome Indicator and User Satisfaction Survey: Consulting Services for Monitoring of Project Outcome Indicators (Primary accident data on LMNHP corridor) and Road User Satisfaction Survey on Delhi-Panipat of NH-1. Under Technical Assistance (TA) loan of World Bank (under procurement). Appointment of Consultant for Network Safety Management Action for appointment of Consultant for Network Safety Management and Road Information Management under TA loan of World Bank has been taken up as a Pilot project of about a length of 2000 km. The Network Safety Management (NSM) comprises a comprehensive network analysis that enables Road Administrations to detect sections, where an improvement of the infrastructure is expected to be cost effective. The NSM is now being considered a better approach for safety management over traditional accident black spot improvement approach. The NSM requires reliable GIS based crash, flow and other asset management data. The overall objective of this assignment is to build capacity of NHAI in Network Safety Management and develop an improved Accident Information and Management System.
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Policy circular issued on work zone Safety and Engineering Measures to various Project Implementation Units (PIUs) of NHAI. To improve construction work zone safety, Work zone Safety Guidelines has been issued to all the field units and also instruction has been issued to all PIU to adhere IRC 55, 2011.

Circular for Safety measures have been issued to all Project Directors to ensure the proper signages and information boards are displayed for traffic diversions, provisions of emergency services, control room, emergency numbers and other safety features or warnings at toll plazas for benefits of road users. They have been further instructed to ensure providing of proper signages, road marking, delineators etc. and illumination arrangement during night, specially at hazardous locations, construction sites and diversions for guidance of the road users. Also sufficient, number of man power is to be deployed for Traffic Management. ROAD SAFETY FUND Road Safety Fund is planned to be set up to meet for the cost and expenses on works and services not covered in the scope of the concessionaire but which arise out of safety requirements based on the safety audits of the project highway through the Safety Consultants being appointed by NHAI. The appointment of Safety Consultants for BOT projects is in the process in NHAI. WAY FORWARD Creation of a dedicated body on Road Safety and Traffic Management. Formulate Road Safety Action Plan for the Decade Scientific Recording of Database Encourage HRD and R&D for Road Safety Institutionalization of system of database Scientific Accident Investigation Strengthen system of driver licensing Ensure safety of vulnerable road users Appropriate enforcement of legislations Emergency medical attention within golden hour *****
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