Sub Group on

ROAD SAFETY AND HUMAN RESOURCE DEVELOPMENT (12th FIVE YEAR PLAN)

September 2011

CONTENTS
1 Introduction and TOR .......................................................................................... 1 1.1 1.2 2 2.1 2.2 2.3 2.4 2.5 2.6 3 4 Sub Committees............................................................................................ 1 Present report ............................................................................................... 2 Road user category ....................................................................................... 4 Age and sex .................................................................................................. 4 Time of day ................................................................................................... 5 Urban safety .................................................................................................. 5 Fatalities on rural highways ........................................................................... 6 Summary: Indian situation ............................................................................. 7

Current Status ..................................................................................................... 2

Growth of Vehicles............................................................................................... 8 Strategic planning for road safety ........................................................................ 9 4.1 Education and awareness ............................................................................. 9 Awareness campaigns.......................................................................... 10 Road safety education .......................................................................... 10 Present Scenario .................................................................................. 11 Policy intervention ................................................................................ 11 4.1.1 4.1.2 4.2 4.2.1 4.2.2

Driver Training............................................................................................. 11

Road design standards for urban and rural roads and highways ...................... 12 5.1 5.2 Current Situation ......................................................................................... 12 Recommendations ...................................................................................... 14 Vehicle Type Approval as per safety norms ................................................ 16 Present Scenario of safety regulations in India ........................................... 16

Vehicle safety standards ................................................................................... 15 6.1 6.2

6.3 Inspection and Certification (I&C) of In-Use Vehicles: Roadmap for India ................................................................................................ 18 6.4 7 8 Summary ..................................................................................................... 20 Policing and Enforcement ................................................................................. 20 Post Crash & Trauma Care ............................................................................... 21 8.1 8.2 Prevailing Problems in the Accident & Emergency Care Delivery in India . 21 Recommendations ...................................................................................... 22 For Immediate Implementation: ............................................................ 22 Short term Measures (one two years for realization) ......................... 23

8.2.1 8.2.2

8.2.3 9

Long Term Measures (three five years for realization) ...................... 23

Human resource development .......................................................................... 24 10.1 Legislation and enforcement ....................................................................... 25 10.2 Education campaigns and driver education ................................................ 25 10.3 Vehicle factors............................................................................................. 26 10.4 Environmental and infrastructure factors .................................................... 26 10.5 Pre-hospital care ......................................................................................... 27 10.6 Institutional arrangements ........................................................................... 27

10 International state of knowledge in road traffic safety ....................................... 25

11 Summary Recommendations ............................................................................ 28 11.1 Institutional requirements ............................................................................ 28 11.2 Awareness, education and driver training ................................................... 28 11.3 Data systems .............................................................................................. 29 11.4 Enforcement ................................................................................................ 29 11.5 Urban and highway safety ........................................................................... 29 11.6 Pre-hospital and medical Care .................................................................... 31 11.7 Research infrastructure ............................................................................... 31 12 References ........................................................................................................ 32 13 Appendix 1: Notification for the Sub-Group ....................................................... 37

SUB-GROUP ON ROAD SAFETY AND HUMAN RESOURCE DEVELOPMENT (12th FIVE YEAR PLAN)

REPORT
1 INTRODUCTIONANDTOR
The Ministry of Road Transport and Highways constituted a Sub Group on Road Safety and Human Resource Development in Road Transport Sector to assist the Working Group on Road Transport for the Formulation of the Twelfth Five Year Plan (2012-2017). The Terms of Reference (TOR) for this Sub Group was given as : i) To review the growth of road transport during the Eleventh Five Year Plan period making a critical assessment of the problems faced and the remedial action to be considered in the context of the Twelfth Plan preparation. ii) The problem of pollution and accidents arising out of road transport operations and measures to mitigate the same including periodic inspection of new vehicles. iii) To review the existing arrangements including institutional ones to control and prevent traffic related injuries and fatalities and also suggest measures to reduce incidence of accidents. iv) Regulatory, Educational and Engineering Framework to reduce accidents by 50% in the next 10 years. v) To review manpower training arrangements particularly drivers and instructors in the public / private sector and suggest improvements. vi) To review the existing manpower requirements of SRTCs and suggest measures for streamlining human resources employed by the Public Transport Corporations. vii) Any other matter considered important by the Sub Group. The Sub- Group further constituted Sub Committees on different topics related to Road Safety and Human Resource Development. Membership of the Committee is given in Annexure 1.

1.1 Sub Committees

The Sub-Group further constituted Sub-Committees on different topics related to Road Safety and Human Resource Development as follows: (a) Present status of road traffic crashes in India and summary of studies regarding the same, international best practices and effectiveness of various measures. (b) Review of growth of vehicles and transport on urban and rural roads and associated problems for the period 2006-2011 and predictions for 2012-2017. (c) Education, awareness and driver training. 1

(d) Vehicle safety standards for prevention of crashes and passive safety. Inspection and maintenance. (e) Review of road design standards for urban and rural roads and highways. (f) Policing and enforcement policy with respect to existing rules and regulations (eg MVA), and the need for new technologies. (g) Post crash and trauma care. (h) Human resource development, capacity enhancement, data requirements and research.

1.2 Present report

Each sub-committee submitted a report which was discussed at a meeting of the Sub-Group. The comments were incorporated in a draft report that was circulated to all the members of the sub-group. The report presented below is based on the final summary of inputs obtained from the sub-committees and input obtained on a nonofficial basis from Mr. A. Bliss of the World Bank and the Mr. Oleg Tonkonojenkov of the ADB.

Table 1. Registered motor vehicles in India Highways, Delhi).

(Ministry of Road Transport and

2 CURRENTSTATUS
The number of vehicles registered in India is shown in Table 1. These data show that the total number of vehicles increased from 37 million in 1997 to 115 million in 2009. This represents an annual average growth rate of about 10 percent for cars and motorised two-wheelers and 9 percent for trucks and buses. However, these numbers are probably overestimates as personal vehicle owners register their vehicles and pay the road tax once when they buy the vehicle and are not required to pay an annual tax. Because of this, a large number of vehicles remain on the official record even when they are not in use any more. Recent estimates suggest that the actual number of vehicles in use may be about 60-70 percent of the official number (1;2). Table 2 shows the sales of motor vehicles in India in 2003-2004 and 2009-2010. The sales figures also show an average annual increase of 10-12 percent per year. 2

Table 2. Vehicle sales in In e e ndia (Socie of India Automob Manufa ety an bile acturers, Delhi). D

Table 3 shows th number of road tra he affic fatalitie and the population of India from es e f 1997 to 2009 (3). The total number of fatalities increased at an aver o . f i rage rate of about 2 perce per yea in the pe ent ar eriod 1997-2003 and the rate has increas to ~6.5 sed 5 percen per year since then The num nt n. mber of fata alities per m million pop pulation rem mained around 79-83 in the period 1997-200 and has since incr d d 03 reased to 1 108. Traffic c fatalitie per unit population has been taken as an indicato of the he es n n or ealth burde of en road tra affic crashes on society at the c city, region or nation level. A the indivi n, nal At idual level, w what is of c consequen is the risk of injury per trip, a the tot number of nce y and tal r trips is proportion nate to the population Therefor traffic fa n. re, atalities pe unit popu er ulation e dicator of r risk faced by individu b uals. can be taken as a rough ind The ris of being involved in a fatal ro traffic crash has o sk n oad c obviously b been incre easing for Indi citizens over the past few y ian s years. While some of this increa can be ase e attribut to an in ted ncrease in the numbe of motor vehicles p capita in India, er r per howeve increas er, sing vehicle ownership need no result in increased fatality rates if e ot adequa safety measures are implem ate mented (4) ).

Table 3. Road tra affic fataliti in India (National Crime Rec ies a cords Burea Delhi). au,

2.1 Road user category

Location(percent) Delhi Highways* 20012005 1999 Truck 2 14 Bus 5 3 Car 3 15 Threewheeledscootertaxi 3 Motorizedtwowheeler 21 24 Humanandanimalpoweredvehicle 3 1 Bicycle 10 11 Pedestrian 53 32 Total 100 100 * The data are for 11 selected locations, and thus might not be representative for the entire country. (Tractor fatalities are not included.) Typeofroaduser

Table 4. Traffic fatalities by category of road user in Delhi and selected locations on national highways (Mohan et al. 2009; Tiwari et al. 2000).

Official road traffic crash data do not include fatalities by road user category in India. Such data are only available from a few cities and research studies done on selected locations on rural highways. Table 4 shows traffic fatalities by category of road users in Delhi (capital city of India) and selected locations on national highways (4;5). These data show that car occupants were a small proportion of the total fatalities, 3 percent in Delhi and 15 percent on rural highways. Vulnerable road users pedestrians, bicyclists, and motorized two-wheeler riders) accounted for 84 percent deaths in Delhi and 67 percent on highways. This pattern is very different from that obtained in all high-income countries. The low proportion of car occupants can be explained by the low level of car ownership at 7 per 100 persons as compared to more than 50 per 100 persons in most high income countries. At present levels of growth in vehicle ownership in India, vulnerable road users are likely to remain the dominant mode for the next few decades. The incidence of road traffic fatalities can only be controlled in the coming years if road safety policies put a special focus on the safety of vulnerable road users.

2.2 Age and sex

Figure 1 shows the distribution of road traffic fatalities in 2009 by age groups and sex of victims (3). Though the exposure numbers for India are not available, childrens presence on the road unsupervised is not insignificant. The reasons for the low involvement rate of children needs Figure 1. Traffic fatalities by age and gender, to be investigated. Highest number of road deaths are seen in India 2009 (National Crime Records Bureau,
Delhi).

road is not insign s nificant. Th reasons for the low involvem he s w ment rate o children needs of n to be in nvestigated The high d. hest number of road deaths are seen in th age gro of e he oup 15 44 years, wh 4 hich is the most prod ductive sec ction of Indian society y.

2.3 T Time of d day

Figure 2 gives the proportio of e on fatalitie by time of day in 3 large es 35 cities o India (po of opulation > 1 million) and in the rest of th ) e he country including rural road In y ds. the per riod 09:00 to 21:00 th he proport tions rema high and ain similar both in the large citie and e es elsewh here. In the late night hours e t (21:00-24:00) traffic volume are es much lower than the peak d day time ra ates (1) but the fatality rates t y Figure 2. Road traffic accident p F R c proportions (%) do not reflect this In the ea s. arly by b time of day in 35 cities with m d more than 1 mornin hours (0 ng 00:00-06:00 the 0) million pop pulation and those in the rest of India d f proport tions are m much lower in the m r in 2009 (Na ational Crim Records Bureau, Delhi) me s D large c cities, but re elatively hi igher in the res of the country. It is st possibl that sinc the rest of the cou le ce untry includ nationa highway the des al ys, comme ercial good traffic on those hig ds n ghways ma account for this. In the absen of ay n nce more d detailed epidemiological data w can only surmise that the hig rates at night we y gh could b due to h be higher spee of vehicles when traffic volumes are lower and/ eds n /or higher frequency of driving under the influence of alcohol. Evidence for increa y o e ased use of alcohol co omes from a hospital study in Delhi where 29% of th riders of D e he f motoriz two-wh zed heelers admitted to a alcohol con nsumption before the crash (6). In e . Bangal lore, a hos spital-based study showed that alcohol wa involved in 22% of as d o nighttim crashes and that 35% of ra me s, t andomly ch hecked driv vers on the road at night e were under the in nfluence of alcohol (7 f 7).

2.4 U Urban sa afety

Figure 3 shows th fatality rates for cities with populations greater th 1 millio he p s han on person for the y ns years 2001 and 2009 (3). Delhi had the highest num mber of fata alities in 2009 (2 2,325) with a rate of 127 per million population. The lowest ra was in h ate Amritsa (22) and the highe in Visha ar d est akhapatnam (433), w an ove with erall averag of ge 172 fat talities per million per rsons for a these cit all ties. In this period of eight year only s rs, nine of the 35 citi did not experienc an increase in fata f ies ce ality rates. The highe est increas was 1,0 percent in Asanso Since a vast majo se 027 ol. ority of the victims in these cities a vulnera are able road u users, one possible cause could be increa d ases in veh hicle speeds The pro s. obability of pedestrian death is estimated at less tha 10% at impact n e an speeds of 30 km/ and grea than 8 s /h ater 80% at 50 km/h, and the relatio onship betw ween increas in fatalit se ties and inc crease in impact velo ocities is go overned by a power of four y (Leaf a Preuss 1999; Koornstra, 2007). Sm increases in urba speeds can and ser, mall an increas death ra se ates drama atically.

Figure 3. Traffic f fatality rate in cities with popul es lations of a least one million, 2001 at e 2 and 200 (Source National Crime Rec 07 e: cords Bureau, Delhi).

Severa recent s al studies hav clearly s ve shown that nearly 70 80 % of the victims killed t on Indian roads ( (varying as per location, state , highway o other roa s or ads) are trians , mot torised two wheeler r o riders and bicyclists. The impac of crashes are ct pedest severe on highwa resultin in more deaths on highways , closely linked to speed e ays ng e n s and ca ategories of vehicles f

2.5 F Fatalities on rur al highw s ways

India has a total r road netwo of 4.11 million km The total length of accessork m. controlled highwa is less than 800 k (731 km as on 31 ays km m 1.3.2010; s source: Basic tatistics of India, 2004 4-05, 2005 5-06, 2006-07, & 200 07-08) at present. Although road st nationa highway constitut only abo 2% of th total roa network about 40 of al ys te out he ad k, 0% the tota road traf moves on these r al ffic roads. Deta ailed data are not av vailable at the t nationa or state level for cr al rashes on national highways. A study collected dat on ta modal shares, ve ehicle spee eds, and tra affic crashe on selected locations on nat es tional ate ays ate (5). he and sta highwa around the country in the la 1990s ( Table 4 shows th type of road users kille on highways. The study reported that trucks wer the striking d ed e re party in 65% of fa crashe Other s n atal es. studies report that the majority o the crashes e of involve buses, 2 percent of the vict ed 25 tims were pedestrians, rear-end crashes p d comprised 40 percent of the total num e mber of cra ashes and that crashe were es increas sing at a ra of 3.9 p ate percent per year (8-12). Data fr r rom Tumku Road sa ur afety and injury preven ntion programme has shown that 52 % of road deat in the district s f ths d occurre on 3 of the highwa passin through the district A study o road traf ed ays ng t. of ffic crashe on a Nat es tional High hway in the southern state of Ke e erala repor rted that he eavy vehicle had a high involvement, and pedestrian and cyc es ns clists were 28% of the e victims (12). The most impo s ortant finding of this study is tha the fatality rate per s at volume is more th three t e han times higher on the four-lane section than on two-la f n ane section The con ns. nstruction of four-lane divided highways ( h (without ac ccess contr rol) does not seem to have redu o uced fatality rates, an vulnera nd able road users still account for a la arge propor rtion of fata alities. The is a clear case for redesign of intercity roads ere r y with se eparation o slow and fast mode The ne of road users on local shor of d es. eed d rt 6

distance trips will have to be accounted for. Solutions for many of these issues are not readily available and research studies are necessary for the evolution of new designs A study conducted by Tiwari et al (5) shows there were no major differences in rollover crashes on two-lane and four-lane roads. Similarly, there were no major differences in head-on collisions on different types of two-lane roads. However, it is surprising that 19% of crashes on four-lane divided roads were head-on collisions. This means that many vehicles were going the wrong way on divided highways. Rear-end collisions (including collisions with parked vehicles) were high on all types of highways, including four-lane highways. This shows that although more space is available on wider roads, rear-end crashes are not reduced there. Impacts with pedestrians and bicycles have a high rate on all roads, including four-lane divided highways. Collisions with fixed objects were infrequent only on four-lane divided highways. Speeds of cars averaged 60-70 km/h and heavy vehicles 50-60 km/h on four-lane divided highways (with no access control). This means that many vehicles on these highways would have been travelling at speeds in excess of 80 km/h in mixed traffic, with some vehicles at speeds less than 50 km/h, and the presence of pedestrians and bicyclists. In summary, it is clear that crash rates on intercity roads are high. The construction of four-lane divided highways (without access control) does not seem to have reduced fatality rates, and vulnerable road users still account for a large proportion of fatalities. The presence of slow modes on highways creates serious problems, as speed differentials can account for significant increases in crash rates (Koornstra, 2007). High incidence of fatal rear-end crashes suggests a general lack of visibility with a possible contribution of poor conspicuity of parked vehicles. There is a clear case for redesign of intercity roads with separation of slow and fast modes. The needs of road users on local short distance trips will have to be accounted for to reduce the probability of head-on crashes (due to drivers going the wrong way on divided highways) by provision of continuous service lanes and safe road crossings at convenient distances. Solutions for many of these issues are not readily available, and research studies are necessary for the evolution of new designs.

2.6 Summary: Indian situation

Road traffic fatalities have been increasing at about 8% annually for the last ten years and show no signs of decreasing. Two modelling exercises have attempted to predict the time period when we might expect fatality rates to start to decline in a range of countries (13;14). Cropper and Kopits predicted that fatalities in India would reach a total of about 198,000 before starting to decline in 2042 and Koornstra predicted an earlier date of 2030 for the peak traffic fatalities in India. If we assume that the present growth rate of 8% per year declines in a linear manner to 0% by 2030, then we can expect about 260,000 fatalities by 2030. Neither of these projected dates (2042 and 2030) can be accepted as road safety goals for the country. An earlier report co-authored by the present author has a more detailed analysis of the road traffic situation in India and possible countermeasures. In summary, road safety policies in India must focus on the following issues to reduce the incidence of road traffic injuries: pedestrians and other non-motorists in urban areas; pedestrians, other non-motorists, and slow vehicles on highways; motorcycles and small cars in urban areas; over-involvement of trucks and buses; night-time driving; and wrong way drivers on divided highways. There is an urgent need to 7

revamp police data collecting procedures so that necessary information is available for scientific analysis. India specific countermeasures will be possible through continuous monitoring and research, which will require the establishment of road safety research centres in academic institutions and a National Road Safety Board that could help move toward a safer future as outlined above.

3 GROWTHOFVEHICLES

Table 5. Vehicle sales in India, current and projected (Source: SIAM).

Table 5 shows that vehicle sales are projected to increase by about 80% in the 12th plan. If corrective steps are not taken on an urgent basis, road accident rates are bound to increase. International experience has shown that increase in the number of vehicles need not result in an increase in road traffic accidents if scientific countermeasures are implemented. Most European, North American countries and others like Australia, Japan and Singapore have much higher vehicle ownership rates than India, but they have much lower traffic fatality rates.

4 STRATEGICPLANNINGFORROADSAFETY
Implementing road safety programs needs a vision, mission and focus. Political commitment is crucial in this process as national and state governments should make a determined effort to address the problem. Capacity strengthening of all involved policymakers and professionals is essential. In total, it requires a scientific, systematic and programmatic approach to develop implement monitor and evaluate road safety in the country. The management system should bring in ownership of the program, accountability, neutrality, consider present and future developments, limitations of existing systems, current and projected road vehicle and land use patterns, financial arrangements and other aspects. Moving ahead from the earlier concepts of educating road users to safe roads, safe vehicles and safe people, it places emphasis on a Safe Systems Approach where road environment is used as reference. Global experience has clearly demonstrated that a lead agency staffed by professionals is essential for managing all aspects of traffic safety in a country. To deliver road safety in India, a lead coordinating agency at both national and state level is essential to coordinate all road safety activities. Its major focus should be on: horizontal coordination with different ministries and agencies vertical coordination within ministries at national and regional levels legislative framework Resource mobilization and allocation Funding mechanisms delivery of interventions mechanisms for achieving results systems for monitoring and evaluation involvement of civil society and professionals research and technical base

4.1 Education and awareness

Road safety is in a critical state in India and needs a systematic effort to change the behaviour of all citizens through a cultural shift to inculcate a safety culture. The basic instinct of flouting rules needs to be changed to respect the rules of the road, so that all road users become safe. Not only those travelling inside a steel bodied vehicle should be safe, but all others who are exposed to the vagaries of the environment and are vulnerable like the 2-wheeler rider, cyclist and the pedestrians, constituting the highest proportion in road fatalities and injuries, should be equally safe. To educate and bring awareness in the population on road safety, a massive programme of education and awareness campaign is required to be undertaken. This will have many features for addressing the weaknesses in the system, as well as in improving the awareness levels. This will include educating the system managers covering safety through curriculum based education and in the form of campaign for better awareness encompassing safe behaviour and safety culture. There is a whole range of awareness which is required to be brought into the system, so that systemic problems get connected. In addition to this, general public is to be exhorted with the road safety scenario and its implication on individual and the country, regularly for a very long time so as to bring in permanent behavioural changes. Education of road users should move beyond preaching to accepting safety as a way of life and the rights of people to safety in traffic environments. 9

4.1.1

Awareness campaigns

There is a whole range of awareness which is required to be brought into the system, so that systemic problems get connected. In addition to this, the general public is to be exhorted with the road safety scenario and its implication on individual and the country, regularly for a very long time so as to bring in permanent behavioural changes. The following categories of campaigns will be necessary: Public Awareness Campaign Television Promos Live Discussion on Television Live and Let Live Programme on TV Dos and Donts of Road Safety Celebrity Endorsement on Television Radio Programmes Newspaper Campaigns Short Films in Cinema Halls Road Safety Posters Hoardings carrying Road Safety Messages The Supreme Courts ruling that no common person will be prosecuted or put to unnecessary interrogation on bringing an accident victim to hospital, needs to be given lot of publicity across the country. Nukkad Natak (Street plays) Use of Local Cable Network Short public meetings of locals in the market place or business centres of small towns and villages using loud speakers and a very effective in communicating to the public for short duration on a specific topic; and the road safety issues can be talked in such meetings Distribution of Leaflets Road safety education

4.1.2

Education of Officials in the System Capacity building of policy makers and programme managers is crucial to increase the role of safety in traffic environments, incorporating safety features at the time of design of vehicles and roads, and to formulate safety policies and programmes. The government officials in urban and non-urban areas, involved in building and managing roads and road transport, are to be sensitized about their responsibilities in respect of compliance to road safety, and on how to deliver the same with due accountability. Some of these are listed here under: NHAI, PWD and Police Department Many of the officials are not aware of the safety requirements in the planning, design and operations of the road systems. All of them need to attend workshops for training and educating them for getting acquainted with the safety problems in their correct perspective. For example the Traffic Police, many a times, would not have knowledge of managing traffic, and his decision in handling traffic at a junction or in an area could be wrong or sub-optimal.

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Consultants/Designers, NGOs and Corporates For enhancing the capacity of the system in handling the road safety problems, the government and private stakeholders need to be trained and educated with regard to planning, design and management of the road system. School Curriculum Development The main aim of road safety education should be based on the following principles: o To instil the knowledge necessary to understand road traffic rules, and for safety on the road o To aim at appropriate and safe behaviour in specific traffic situations o To develop awareness of the importance and usefulness of respecting road safety rules and measures. Different human resource strengthening programmes should be developed to include engineers, police, transport and health officials on formulating, developing, implementing, monitoring and evaluating road safety policies and programmes.

4.2 Driver Training

4.2.1 Present Scenario For want of any credible data with the regulatory agencies, it is estimated that there are 7000 driving schools across the country. Majority of the driving schools are for LMV Drivers. There are about a dozen institutes with proper facilities to train HMV Drivers and SV Drivers. There are no dedicated facilities for Training of trainers. There are very few schools / institutes who organize structured training for the trainers. One such institute is IDTR. These driving schools can train at the most 2 million novices in driving training. Less than 2% of the schools are in the organized sector. Low enforcement on quality in the schools in terms of Instructors and methodology is common. 4.2.2 Policy intervention Framework for evolving policy guidelines on all aspects of driver training (driver training schools, driver licensing, training, periodical certification, health guidelines) should be formulated at the state level. A national regulatory agency should be promoted to coordinate all aspects of driver training All large public and private sector companies should develop and implement a fleet safety policy All existing driver training programmes should be evaluated for content, duration, methods and outcome and need based programmes should be developed. A three tier structure is needed to integrate driving training at the ocal level to a standards monitoring body. Objective of the proposed structure is to formalize the driving training standards and monitoring the same. This consists of three components: (a) Local Driving Training Schools (DTS) and Regional Driving Training Schools (RDTS). (b) IDTR (Institute of Driving & Traffic Research) and DTI (Driving Training Institute). (c) Forum comprising of IDTR and DTI. The forum shall be a body comprising of all IDTR and DTI and 11

headed by each IDTR/DTI on a rotation basis. The IDTR/DTI shall also help transport department in auditing and giving accreditation to the DTS and RDTS. All registered companies, corporate and Government Departments should employ drivers having certificate from an accredited institute / school only. Auditing and grading of driving schools Registered companies / corporate / Government Departments should employ only trained drivers. Transparent and fair process of licensing All the trainers shall be selected, trained and certified only by IDTR/DTI. All DTS shall employ only certified and licensed trainers. Based on level of compliance to rules for setting up driving schools, the driving schools shall be graded as A, B, C, D or E. A Grade schools are such that they fully comply with the rules. B, C, D or E grades are for lesser compliance. MoRTH provides a scheme for setting up IDTR/DTI at state level Before they start imparting driving training in driving schools, they should attend TRAINERS TRAINING in IDTRs/RSIs.

Training of Trainers

Driving training infrastructure

To ensure that the needs are met driver training schools should be encouraged to come up in the PPP mode.

5 ROADDESIGNSTANDARDSFORURBANANDRURALROADSAND HIGHWAYS 5.1 Current Situation

Ministry of Road Transport and Highways and Indian Roads Congress lays down the standards and specifications on various aspects of the design of roads and highways. At present, the following main documents deal with the various aspects of design of roads and highways: Ministrys Specifications for Road and Bridge Works. Geometric Design Standards for Urban Roads in Plains (IRC: 86-1983) Geometric Design Standards for Rural (Non- Urban) Highways (IRC; 73-1980) Code of Practice for Road Signs (First Revision) (IRC: 67-2001) Code of Practice for Road Markings (First Revision) (IRC: 35-1997) Type Designs for Pick-up Bus Stops on Rural (Non-Urban) Highways (IRC: 80-1981) Guidelines for the Design of Interchanges in Urban Areas (IRC: 92-1985) Guidelines on Design and Installation of Road Traffic Signals (IRC: 93-1985) Guidelines for Pedestrian Facilities (IRC: 108-1988) Guidelines on Design of At-Grade Intersections in Rural & Urban Areas (IRC: SP: 41-1994) Hill Road Manual (IRC: SP: 48-1998)

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Guidelines for the Design of Flexible Pavements (Second Revision) (IRC: 372001) Manual for Standards and Specifications for 4-Laning of National Highways through PPP Manual for Standards and Specifications for 6-Laning of National Highways through PPP The Ministry also issues technical circular from time to time.

A review of these documents is an exercise in itself and justice to the requirement of a review can not be done in the limited time available. They are deficient to address the needs of present day requirements of road transport. They are mostly brief, not adequately supported by illustrations for better appreciation and application, do not provide the systems approach in design. These points can be better appreciated when compared to the Standards evolved in the countries with better safety records. Most of these documents were evolved about 10 to 20 years back. The standard on design of urban roads was written 30 years back. Those were the times when the roads and road transport were somewhat neglected areas. Funds for the road sector were quite meagre, road transport was not such a popular mode of transport, the number of vehicles were not so large, the issues were limited and a phased approach of development was the norm. It is against this background, most of these documents were served their purpose. A sea change has taken place in the road transport sector in the last two/ three decades. There has been a tremendous increase in road length, vehicular population and road travel. Roads carry almost 90 percent of the countrys passenger traffic and 65 percent of its freight. ( World Bank Report on India Transport Sector, 2009). Our road infrastructure is unsafe and system of their operation and management is devoid of safety approach. We have been unable to adopt the practice and focus on safety in planning, designing, constructing and operating the road network. The main reasons can be identified as below : Absence of awareness and commitment on criticality of safety on roads amongst stake holders Tendency of quick results (short term view) on lowest initial investment Standards not completely incorporating systems approach in design, construction and operation of road network thereby requiring critical review and modification. Disregard / compromise on standards in cost cutting approach. Lack of planning and design for all categories of road users Absence of life cycle costing approach to save on initial cost Incident based response instead of pro active approach in road design and operation

Despite the huge investment in the road sector road traffic crashes and fatalities have increased during the years. About 50% of these are on National and State Highways and Vulnerable Road Users (VRUs) are involved in about 60% cases. Therefore, the focus has to be on National and State Highways and on VRUs. It has been found the world over that divided carriageway roads are safer but in India the situation is found to be quite different. Despite up gradation of NHs to 4/6 lane divided carriageways facilities road traffic crashes have been increasing.

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The present Design Standards require critical review and modifications to give more focus on VRUs, separation of fast and slow traffic, removal of conflict areas and points, access issues and holistic design approach starting from planning stage of the basics of hierarchical system of road network. Separate Standards dealing with various aspects are combined for a complete document with liberal illustrations of layouts. Another area of concern and detrimental to road safety is that, with the emphasis on the development of roads through private sector participation, the approach being pushed is to keep the scope of development and improvement such that the project cost is low so that the project becomes viable on PPP. The first casualty in this approach, obviously are the safety aspects. Engineers are also being accused of 'over engineering' the project, whereas the fact is that our roads are highly 'under engineered' (to borrow that term) and that is why they are unsafe. With this mind set of cost cutting, we are planning, designing, constructing and operating unsafe roads specially 4/6 lane highways. There appears to be a total lack of commitment on road safety amongst policy makers, designers, investors, operators, and researchers The countries with better safety records had recognised that it is the road infrastructure that should cope with human shortcomings and failing, but we are yet to accept that. As per an assessment undertaken by the Planning Commission sometimes back, the loss to the country every year, due to road traffic crashes and fatalities, would be of the order of Rs. 80,000 cr (after indexing for inflation during the period from initial assessment). Therefore it makes economic sense to invest in road safety. The approach of keeping the cost of improvement as low as possible so to make it fit into available funds and to make it viable on PPP, needs to be given up. It is better to limit the scope in length than in vertical and lateral directions. The impression of over engineering needs to be given up. It would be advisable to plan more and more access controlled facilities such as Expressways if we want to improve mobility and safety. In this context, the idea of six laning the recently improved four lane NHs could be debatable. With the prevailing situation in the country where NHs are gradual ugradation of low category roads, it would be quite difficult to eliminate side frictions and conflict areas and points and may lead to more crashes. Presently there is no design Standards for Expressways though drafting has been initiated. It needs to be finalised on priority. The life cycle cost approach must be adopted in planning and designing the roads and highways. Many countries are adopting this approach for better and safer roads. It needs to be recognised that the human user is bound to commit mistakes and therefore road infrastructure has to cope with human failings and shortcomings. Countries with better road safety recognised this long ago and adopted the concept of forgiving highways. This has to be adopted in planning and design to provide safer roads. Systems approach rather than piecemeal improvement should be adopted. The design standards should be revised accordingly.

5.2 Recommendations
1% of cess money should be earmarked for engineering aspects of road safety which should be utilised for research, pilot projects for show casing, before and after studies and safety audits Cost cutting approach in road development should be abandoned and forgiving highways be planned and provided 14

ressways b planned rather than upgrading existing 4- lane be d a g More Expr highways. Focus sho ould be on VRUs and local traff by providing service roads along d fic c the whole stretch of divided hig ghways tention sho ould be giv to the stretches p ven s passing thr rough linea ar Special att settlement (built up areas) for conflict re ts r emoval by speed con ntrol Capacity s strengthening of offic cials involve in desig and dev ed gn velopment of highways should be taken up in consulta ation with w institut with tions of excellence in the cou e untry. Existing st tandards should be r reviewed and new sta andards should be h developed by technical bodies like IRC and CRRI d a Trained an qualified people should be developed in agencies involved in nd d d e d road safet ty All enginee employ in city corporatio ers yed ons, urban developme bodies, ent highway e engineers a in publ works department in rural a and lic d ts areas shou be uld trained in road safety aspects. y Road safe audits s ety should be a integral part of roa building and an ad g maintenan project nce ts.

6 VE EHICLESA AFETYST TANDARDS

Figure 4. A Annual Pro ogress of publication of AIS stan ndards (So ource: AISC C Secretariat).

After th Motor V he Vehicle Act 1988 cam into for t, me rce, rules w were frame by the Ministry ed M of Surf face Transport (MoST). Thes rules were issue as notif se w ed fication no GSR o. d 590(E) dated 2nd of June 1 ) 1989, and were titled Central Motor Veh d, hicle Rules 1989, s, genera referred to as CM ally d MVR. CMVR- Technica Standin Committee (CMV al ng VR-TSC)- T This Comm mittee has represe entatives from variou stakeholders like governmen ministrie Bureau Indian us g nt es, 15

Standa ards (BIS), Testing Agencies, in ndustry rep presentativ from So ves ociety of In ndian Automo obile Manu ufacturers (SIAM), Au utomotive Componen Manufac nt cturers Association (ACM and Tr MA) ractor Man nufacturers Associatio (TMA) a s on and represe entatives from State Transport Departme ents. The C Committee has played a d major r role in deve elopment o the Safe Regulat of ety tions for ve ehicles and auto d compo onents in In ndia. Autom motive Indu ustry Stan ndards Co ommittee (AISC)- CM ( MVR-TSC is assisted in d drafting the techn g nical standards relate to Safet by anoth Commi ed ty her ittee called the d Automo obile Indus Standa stry ards Comm mittee (AIS having members from vario SC) ous stakeholders. This Committ was co tee onstituted by MoRT& in the ye 1997 and is b &H ear a chaired by Direct (ARAI). d tor The pro ogress of r release of AIS standa ards by AISC is as depicted in the Fig 4. S

6.1 V Vehicle T Type Approval as per A l s afety no orms

Vehicle Type App e proval and certifica ation was made manda atory in the country si ince 1991. E Evolution o regulatio of ons is show in Figur 5. Over t wn re the last 2 d decades se everal safe ety and em mission sta andards we ere implem mented in a phased manne These s er. standards a are based on corresp ponding EC CE regulat tions, EEC directives or C s other re elevant int ternational Figure 5. Evolu ution of aut tomotive regulations in e referen nces. Post 2000, the India (Source: SIAM) a need w felt to a was accelerate the proces of catching up with ECE regu ss h ulations an a compr nd rehensive p plan was underta aken unde NATRiP to enhance the exist er ting testing facilities a also to g and o establis multiple test cente across the countr Simulta sh e ers ry. aneously Safety Roadmap was als establis so shed in ord to take planned st der teps for no otifying safe standards. ety

6.2 P Present S Scenario of safet regula tions in India o ty a n

As a re esult of com mprehensiv efforts a all levels presently India is a a reason ve at s, y at nable level of regulation as comp f ns pared to E ECE regulations and o other coun ntries. Need was d felt to introduce s safety requ uirements f other in for ndustry sec ctors also. Accordingly standa ards are als notified for Constr so ruction Equ uipment Ve ehicles, power tillers and retro-fit tment of C CNG and LP kits on in-use veh PG hicles and Battery op perated veh hicles. Vehicle categorye -wise norm planned in the nex 5 years are indicat in Figure 6. It ms d xt ted is expe ected that b the year 2016, the safety standards would be implement by ese ted. Howev conside ver, ering the rapid increa in traff fatality a injury r ase fic and rates in Ind dia conside eration nee to be g eds given to inc creasing th pace of adoption o he of crashw worthiness standards and adopt tion of active safety s standards suited to the h needs of the country: 16

Table 6. Vehicle safety standards road map

Work should be taken up to: Address safety standards for future technology vehicles. Address safety of other areas like Construction Equipment Vehicles (CEVs), Special Purpose Vehicles, Multi-modal transport vehicles, ITS, inspection & testing of in-use vehicles, etc. Standards should be developed and implemented for vehicles manufactured and sold within the country that do not fall under international standards. Adoption of pedestrian impact standards for all vehicles that are involved in pedestrian crashes in significant numbers.

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6.3 Inspection and Certification (I&C) of In-Use Vehicles: Roadmap for India
Present System The Central Government lays down the law and policy guidelines under the Central Motor Vehicle Rules and the State Transport Department performs the functions of testing of the vehicle and issue of the fitness certificate. The implementation of these rules at the state level is to be done by the State Government by creating suitable and adequate infrastructure for carrying out the fitness tests. The details of the requirement of the test to be conducted for issue of the fitness certificate is given in Central Motor Vehicle Rules (CMVR) rule No. 62. As per the Rule no. 62, all transport vehicles should carry a Fitness Certificate, which is to be renewed every year. The valid Pollution Under Control (PUC) certificate issued by the state authorized test centers operated by the private operators are accepted for issue of the fitness certificate by the State Transport authorities. However all vehicles, both Transport and Non-Transport, are required to undertake mandatory idle emission test or free acceleration smoke test, as applicable, every six months or any other periodicity as notified by the state Government. The technical and administrative committees appointed by the Ministry of Road Transport and Highways had earlier submitted a detailed report for implementing an effective Inspection and maintenance system in India. Further, Government of NCT of Delhi had established two automated vehicle inspection lanes at Burari and these lanes are currently being operated by the Transport Department, Delhi. However, for implementation of full scale Inspection and maintenance regime in India it is essential that a suitable administrative mechanism is formed with the objective of setting up of a system in place to monitor the system on a continuous basis. Major issues The existing vehicle inspection system in India is inefficient and faces a lot of problems which are discussed below: At present, only visual inspection is carried out by the inspectors, and even that is mandatory only for commercial vehicles. The vehicle inspection is mandatory for commercial vehicles only. Personal vehicle owners are required to pay only a one-time tax, at the time of the initial registration of the vehicle. Therefore presently there is no mechanism by which it is made mandatory for personal vehicles to go in for a regular fitness check. Mostly, the vehicle inspection centres do not have any instrumentation or equipment to carry out a proper inspection of the vehicle The inspectors and other staff are not given regular training for skill upgradation. There is no set procedure for inspection and often the decision whether a vehicle is fit or not left to the discretion of the vehicle inspector. The number of vehicles per inspection centre is very high due to the centralized nature of inspection, putting further pressure on the limited capacity of these inspection centers.

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There is no mechanism at present for auditing, performance monitoring and capability of these centers. Although the present PUC system is authorized by the State Governments, there is lack of control mechanisms like auditing/ inspecting for these PUC Centres. The criteria for authorising / registering a PUC Centre need to be augmented. The data collected in the inspection centre / PUC centre is not analysed to check the data validity and improvement in the system There is no organized industry for repair and maintenance of vehicles. There are a number of roadside mechanics available that may or may not have adequate equipment and training for maintenance. As these mechanics are cheap and available next door, vehicle owners still use their services. Key recommendations/Suggestion for Implementation for I&C Regime A phased approach would be necessary to inspect all vehicles on safety and emissions performance. Significant investments, improvements in regulatory and management practices, increased capacity and capability would be prerequisites for the effectiveness for such a regime. Hence, a phased approach has been suggested for ensuring effective implementation of an inspection and maintenance program. Thus, the following phasing is suggested: In the first phase, cities with significant transport vehicles(Metros) should introduce a modern Inspection and Certification regime In these cities, a modern inspection regime should be first introduced for commercial vehicles, and then subsequently for private vehicles. Within private vehicles, older vehicles (more than 9 years old) should be included in the regime earlier. And then it must be extended to the newer fleet (3-9 year old) Both emissions and safety tests should be introduced simultaneously for commercial vehicles. For cities where the regime would be introduced later or for vehicle categories that are not being covered at the first instance, the current PUC and fitness testing regime should continue. Here the existing PUC regime should be strengthened by improving the efficacy of the tests carried out with improved instrumentation and test methodologies and a more effective auditing system. While it would be ideal to have a large number of testing centers spread all over a city that could cater to the entire vehicle fleet so that vehicle owners are not inconvenienced, cost and investment considerations may make such an extended system unviable. The frequency of these tests should be based on the tradeoff between the cost implications for setting up the infrastructure for testing as also convenience to vehicle users. The principles on which the frequency of tests should be based are the following: Commercial vehicles with a higher utilization should be tested more often Older vehicles should be tested more frequently than newer vehicles Private vehicles including 2 wheelers should be included in the I&M regime

Initially, the focus should be on testing of commercial vehicles only. With gradual capacity building and an increased number of integrated safety and emissions 19

testing centers, the frequency and tests can then be extended to private vehicles and other categories of vehicles including 2 wheelers.

6.4 Summary
At present the introduction of new safety standards is dependent on the testing facilities available in the country including those at NATRIP. Since the vehicles produced in the next few years will be present on the road for about two decades, it is essential that the provision of testing facilities and introduction of new standards should be expedited. Impact standards for vehicles should be implemented on an early basis. Since a vast majority of those injured and killed comprise of pedestrians, bicyclists, and motorcyclists, India should take the lead in introduction of pedestrian impact standards for all vehicles. Special attention should be given to evaluating modern generation ITS and active safety systems for applicability in India. India should set up a NCAP India Programme.

7 POLICINGANDENFORCEMENT
Actual policing of traffic laws is typically regarded as the central element of an enforcement system (also containing legislation and sanction aspects). Traffic policing comes both in the form of (i) traffic police patrolling; and (ii) automatic traffic enforcement systems. Automatic traffic enforcement serves to automatically detect traffic violations and facilitate punishment of offenders. Speed enforcement systems that are fully automatic and typically include speed cameras linked to either inductive road loops radar, piezo cables, video, or lasers should be developed and introduced. Such systems should be thoroughly thought out to take into account local conditions and challenges. Accordingly, key actions under enforcement could include: Establishment of dedicated, fully equipped and trained mobile traffic police units. Development and piloting of semi-automatic traffic surveillance systems on high-risk transport corridors. Enforcement of drinking and driving laws using modern technology. Highway safety patrols. Enhancement of police budgets to provide for an adequate traffic police force in urban areas and rural highways.

To increase enforcement levels of important road safety laws, it is important that: 1. The police department in each state develop a uniform policy about laws with regard to existing and applicable laws. 2. Senior police officers are sensitised towards road safety and enforcement atleast once a year 3. Each city and district is helped to draw up local plans using local data. 4. State police academy institutions train middle level implementing officers after deciding on content, duration and structure.

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5. All enforcement activities are systematically monitored and evaluated for its effectiveness. 6. Training of officials in integrating road safety with modern ways of traffic management. These activities require conducting state and local level training activities and require identifying an institution in the state with the overall responsibility and networking with other local institutions. To achieve the above the following actions need to be taken: a) Training of police officials at all levels on scientific aspects of traffic safety. b) Revamping of accident data collection procedures to be standardised across states, cities and rural areas nationally. c) Data recording systems to be web-based and available to policy makers and researchers. d) Introduction of modern methods and technologies for speed control and prevention of drinking and driving. e) Modification of penalties and other laws as pertaining to policing and enforcement as recommended by the Sundar Committee for amendment of the Motor Vehicles Act.

8 POSTCRASH&TRAUMACARE 8.1 Prevailing Problems in the Accident & Emergency Care Delivery in India
1. At the site of Impact: There is lack of awareness about the EMS System, the general public doesnt possess basic first aid skills, there is no standardized toll free national access number to call for emergency medical help, adequate number of First Responders/Ambulances are not there, there are no standardized protocols & medical directives for EMS 2. In Transit to a definitive care health facility: Non availability of appropriate & safe transport for the injured patient in the form of road ambulances, air ambulances, etc., The real concept of an Ambulance is missing in India. Existing ambulances are more like transport vehicles and any vehicle suitable to carry a supine patient is called an ambulance without consideration to the overall ambulance design w.r.t. patient care, comfort & ergonomics; currently there is no National Ambulance Code in the country which specifies the minimum National Specifications for various types of Ambulances, viz ALS, BLS, First Responder, etc., in-adequate care during transportation due to lack of trained Emergency Medical Technicians (EMTs) in the country & unskilled existing manpower 3. At the Healthcare Facility a. Appropriate healthcare facilities are not available within reasonable distances b. There is a mismatch between the healthcare facility capacity vis a vis the catchment area resulting in overcrowding at the limited number of available facilities

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c. Infrastructure at the existing healthcare facilities is deficient due to lack of funds or poor planning d. Inadequately equipped healthcare facilities due to lack of National Standards and Guidelines regarding the same e. Sub-optimal quality care at the existing health facilities due to inadequately skilled manpower f. Lack of standard written Protocols regarding the handling of a patient on his arrival at the healthcare facility g. Lack of accountability and monitoring mechanisms to ensure timely and optimal care

8.2 Recommendations
8.2.1 For Immediate Implementation: Review & Audit of the Existing Schemes: o The scope of National Highway Trauma Care Project (NHTCP) should be expanded to cover all the state and national highways. o National Highways Accident Relief Services Scheme (NHARSS) o A periodic audit for the already supplied Ambulances & Cranes should be done w.r.t. their location, availability, utilization, efficacy, manpower, uptime, etc. o All CRVs & Ambulances should be accessible by the National Medical Relief Toll Free Number (102), integrated under a National Highway Accident Relief Network and closely linked with the state EMS. o The National Medical Relief Toll Free Number (102) should be well advertised by displaying prominent signage at every 2 5 kms Incident Management System (IMS) NHAI o The specifications for the Ambulances, Patrol Cars & CRVs should be revised, updated & standardized to remove ambiguity and ensure uniformity in form and function. o A periodic audit for the already awarded contracts should be done w.r.t. the quality of service being rendered, quality of vehicles being used as patrol cars, ambulance and cranes, their utilization, linkages, uptime, etc to ensure they are meeting with the T&C of the contract in spirit. NHAI should institutionalize this activity by establishing an IMS monitoring unit staffed by skilled manpower. o This scheme should be rapidly extended to cover the entire length of the National & State Highways o The response time of 30 mins for the Ambulances, Cranes, etc to reach the site needs to be reduced to 10mins. To ensure this, a close liaison with the corresponding States EMS Network is a must.

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Emergency Medical Services (EMS) System

o National Framework for the EMS System with the aim of providing effective and economical emergency care should be developed so as to maintain uniformity and continuity across the country. o This framework should specify the broad specifications, guidelines and protocols for the various components of EMS System viz. Ambulances, Trauma Centres, Emergency Departments, Emergency Medical Technicians, Communication, Dispatch Centers, Command & Control Posts, etc. o All the states should develop their respective EMS Systems within this predefined framework o All police officers, drivers, teachers and paramedical personnel should be trained in basic first aid practices. Ten institutions should be identified in the country to conduct such programmes based on uniform methodologies.

8.2.2

Short term Measures (one two years for realization) Short term EMS programmes of 4 5 days duration should be developed in select institutions for CMOs and nurses working in emergency rooms. Enunciate a National Accident Relief Policy & a National Trauma System Plan Deployment of a Pan-India Pre-Hospital Emergency Medical Care Network to ensure a primary crash response time of 8 10 mins. This network should be adequately supported by a unified toll free number, seamless communication, centralized dispatch, medical direction, triage protocols & crash rescue units. To verify , audit & designate the existing healthcare facilities along the Highways and upgrade those found deficient to minimum defined levels & to plan for new facilities where there is a deficit so as to ensure the availability of one emergency care facility at every 50km along the national highways. Capacity building and regular training in EMS to all involved in trauma care supplemented by training in First Aid to the public Encourage research & development into post-crash response by identifying and funding 5 major health care institutions of excellence in the country . Long Term Measures (three five years for realization) All district hospitals and community health centres across the country should be developed as integrated trauma care centres with appropriate manpower and facilities Augmentation in capacity and resources of available Medical establishments Setting up of Regional Referral Trauma Centres in tertiary hospitals across the country. Plan for rehabilitation centres for the trauma care victims Standardize minimum national specifications for various types of Emergency Response Vehicles viz. First Responders, Patient Transport Ambulances, BLS Ambulances & ALS Ambulances, Crash Rescue Vehicles, Dispatch 23

8.2.3

Centres, Command & Control Centres, etc. so as to bring homogeneity in the system across the country. Assured essential emergency care to all citizens of India

9 HUMANRESOURCEDEVELOPMENT
To assess the relative standing of India in production of research output, a study was undertaken to compare the same in four countries: India, China, Brazil, and the USA. The present report was designed to analyze the present situation of the ongoing research, in the field of road traffic safety. The analysis takes into account works mentioned in Scopus, the online bibliographic database of journal articles. A comprehensive search was carried out over the database, covering all years since its inception (1960). The number of papers published with their origin is shown in Table 7.
19612005 20062010 TOPIC BRAZIL CHINA INDIA USA BRAZIL CHINA INDIA USA 59 230 80 5,299 118 911 120 2,353 RoadSafety Table 7. Total number of scientific publications in indexed journals in the areas of road safety and transportation planning for the period 1961-2010 by country of origin.

The data clearly indicate that India has a very little research activity in the area of traffic safety. An examination of the titles of road safety articles from India indicated that a significant proportion were medical case studies. For the period 2006-2010, in the area of road safety China produced 8 times as many scientific articles than India, and Brazil about the same number as India though it is a much smaller country than India. It will take many years for India to catch up with countries like Brazil and China if action is not initiated in the 12th FYP. The following initiatives are recommended: a. Establish eight multidisciplinary centres of excellence in the area of road traffic safety in existing institutions of repute. The centres so establish must encompass all the disciplines associated with traffic safety. b. Establish at least four injury research centres in medical institutions to focus on details of road traffic injury. c. Create job opportunities at MTech and PhD levels in MoRTh, NHAI and other road building agencies in Road Safety Units specially created for the purpose. d. MoRTH should establish a fund for providing 50 fellowships for in-service professionals to attend international short term courses of repute in the area of road safety. e. MoRTH should establish a professional agency for collection and analysis road traffic accident data in collaboration with NCRB. f. MoRTH should sponsor an annual conference on traffic safety in collaboration with an academic institution every year.

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10 INTERNATIONALSTATEOFKNOWLEDGEINROADTRAFFIC SAFETY 10.1 Legislation and enforcement

Most attempts at enforcing road-traffic legislation in short bursts will not have any lasting effects, either on road-user behaviour or on accidents. Imposing stricter penalties (in the form of higher fines or longer prison sentences) will not affect roaduser behaviour, and imposing stricter penalties can reduce the level of enforcement (15). Increased normal, stationary speed enforcement is in most cases cost-effective. Automatic speed enforcement seems to be even more efficient. However, there is no evidence to prove that mobile traffic enforcement with patrol cars is cost-effective (16). The only effective way to get most motorists to use safety belts is with good laws requiring their use and sustained enforcement. When laws are in place, education and/or advertising can be used to inform the public about the laws and their enforcement (17). In general, the deterrent effect of a law is determined in part by the severity and swiftness of the penalty for disobeying it, but a key factor is the perceived likelihood of being detected and sanctioned. Laws against drinking and driving are effective when combined with active enforcement and the support of the community (13;18;19). Policing methods and enforcement techniques have to be optimized for India to be effective at much lower expenditure levels. There are no systematic studies evaluating different techniques followed around the world. Research needs to be done on the effectiveness of professional driver education, driver licensing methods, and control of problem drivers in Indian settings.

10.2 Education campaigns and driver education

Road-safety campaigns often aim to improve road-user behaviour by increasing knowledge and by changing attitudes. There is little clearly proved relationship between knowledge and attitudes on the one hand and behaviour on the other (17;20). Many highway safety educational programmes do not work. They do not reduce motor-vehicle crash deaths and injuries (21-23). Only a few programmes have ever been shown to work, and contrary to the view that education cannot do any harm, some programs have been shown to make matters worse (21;24). Driver or pedestrian education programmes by themselves usually are insufficient to reduce crash rates (25). They may increase knowledge, and even induce some behaviour change, but this does not seem to result in a reduction in crash rates (26;27). There is, however, no reason to waste money on general campaigns. Campaigns should be used to put important questions on the agenda, and campaigns aimed at changing road-user behaviour should be focused on clearly defined behaviours and should by preference fortify other measures such as new legislation and/or police enforcement. The effects of campaigns using tangible incentives (rewards) to promote safety-belt usage have been evaluated by means of a meta-analytical approach. The results (weighted mean effect) show a mean short-term increase in use rates of 12.0 25

percentage points; the mean long-term effect was 9.6 percentage points (28). Research first from Australia, later from many European countries, then from Canadian provinces, and finally from some US states clearly shows that the only effective way to get most motorists to use safety belts is with good laws requiring their use. Studies show that driver education may be necessary for beginners to learn the elementary skills for obtaining a license, but compulsory training in schools leads to early licensing. There is no evidence that such schemes result in a reduction in roadcrash rates. On the other hand they may lead to increased road-crash rates (29-31). While there may be a need to train professional drivers in the use of heavy vehicles, there is no evidence that formal driver education should be compulsory in schools and colleges. Helmet use reduces bicycle-related head and facial injuries for bicyclists of all ages involved in all types of crashes, including those involving motor vehicles (32). Similar results have been confirmed for motorcyclists (33-39).

10.3 Vehicle factors

Vehicles conforming to EU or USA crashworthiness standards provide significant safety benefits to occupants and the effectiveness of the following measures have been evaluated. Use of seatbelts and airbag-equipped cars can reduce car-occupant fatalities by over 30%.56,57 It is estimated that air-bag deployment reduced mortality by 63%, while lapshoulder-belt use reduced mortality by 72%, and combined air-bag and seatbelt use reduced mortality by more than 80% (40-42). High-mounted rear brake lights reduce the incidence of rear-end crashes (43) A meta-analysis of 17 studies that have evaluated the effects on traffic safety of using daytime running lights on cars shows that such use reduces the number of multi-party daytime accidents by about 1015% for cars using daytime running lights (44). Similar results have been confirmed for the use of daytime running lights by motorcyclists (45-47). Improvements in vehicle crashworthiness and restraint use have contributed to a major reduction in occupant fatality rates and are estimated to be more than 40% in most reviews (13;25;48). However, not enough work has been done to make vehicles safer in impacts with vulnerable road users, or on vehicles specific to Indian conditions.

10.4 Environmental and infrastructure factors

The road environment and infrastructure must be adapted to the limitations of the road user (49). Traffic-calming techniques, use of roundabouts, and provision of bicycle facilities in urban areas provide significant safety benefits (50;51). Limitedaccess highways with appropriate shoulder and median designs provide significant safety benefits on long-distance through roads (52;53). Though improvements in road design seem have some beneficial effects on crash rates, increases in speed and exposure can offset some of these benefits (48;54). Road designs that control speeds seem to be the most effective crash control measure (55).

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A great deal of additional work needs to be done on rural and urban road and infrastructure design suitable for mixed traffic to make the environment safer for vulnerable road users. This would require special guidelines and standards for design of, (a) roundabouts, (b) service lanes along all intercity highways, and (c) traffic calming on urban roads and highways passing through settlements.

10.5 Pre-hospital care

Recent Cochrane Reviews have concluded that (56;56-59): There is no evidence from randomized controlled trials to support the use of early or large-volume intravenous fluid administration in uncontrolled haemorrhage. There is uncertainty about the effectiveness of fluid resuscitation in patients with bleeding. The effect of pre-hospital spinal immobilization on mortality, neurological injury, spinal stability, and adverse effects in trauma patients therefore remains uncertain. Because airway obstruction is a major cause of preventable death in trauma patients, and spinal immobilization particularly of the cervical spine can contribute to airway compromise, the possibility that immobilization may increase mortality and morbidity cannot be excluded. In the absence of evidence of the effectiveness of advanced life support training for ambulance crews, a strong argument could be made that it should not be promoted outside the context of a properly concealed and otherwise rigorously conducted randomized controlled trial. A recent study by Lerner and Moscati shows that no scientific evidence is available for supporting the concept of the golden hour (60). While it is desirable that we possible time, it is equally important that ambulances do not endanger the life of others while doing so, and do not waste scarce resources in promoting systems of dubious benefit (61). Before we import expensive pre-hospital care systems from high income countries, it is necessary that their effectiveness be established.

10.6 Institutional arrangements

a. It is essential to establish a a lead agency (and associated coordination mechanisms) on road safety involving partners from a range of sectors through. The lead agency and related secretariat should be independent of the road building agency (62). b. A national strategy (at a cabinet or ministerial level) should be coordinated by the lead agency through: confirming long-term investment priorities, specifying agency responsibilities and accountabilities for development and implementation of core work programmes. c. Data collection systems are necessary to provide baseline data and monitor progress in reducing road traffic injuries and fatalities and other important indicators such as cost, etc. The data collection systems may follow IRTAD guidelines. d. It is essential to establish specialist road safety research centres to monitor and improve the safety of the road network by providing interdisciplinary in-depth research studies.

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11 SUMMARYRECOMMENDATIONS
The UN Road Safety Collaboration has developed a Global Plan for the Decade of Action for Road Safety 2011-2020 with input from many partners. The Decade of Action for Road Safety is an historic opportunity for India and many other countries to develop a framework for action which could ultimately save a significant number of lives across the ten-year period. The overall goal of the decade will be to halt or reverse the increasing trend in road traffic fatalities around the world by increasing activities at the national level, through: Setting an ambitious target for reduction of road fatalities by 2020; Strengthening the architecture for road safety; Increasing the level of funding to road safety Increasing human capacity within countries relating to road safety; Providing technical support to countries using successful experiences from others; Improving the quality of data collection at the national, regional and global levels; Monitoring progress on a number of predefined indicators at the national, Regional and global levels including both the public and private sectors.

11.1 Institutional requirements

Implement on an urgent basis the key recommendations of the Sundar Committee Report concerning the creation of National Road Safety and Traffic Management Board with the legal authority to promote and sustain improved road safety in India, reflect international good practice and provide an informed basis for effective action. This requires that The National Road Safety And Traffic Management Board Bill be passed in the Parliament of India. Strengthen related vertical coordination arrangements at the national level across ministries with similar mechanisms at the state level.

11.2 Awareness, education and driver training

There is a whole range of awareness which is required to be brought into the system, so that systemic problems get connected. Awareness should be spread using all modes of communication: TV, Newspapers, Radio etc. Education of Officials in the System: NHAI, PWD and Police Department, Consultants/Designers, NGOs and Corporates Framework for managing and monitoring driving training at State and Regional level. Training and licensing the trainers. ITIs to be involved in driver training. MoRTH provides a scheme for setting up IDTR/DTI at state level. Before they start imparting driving training in driving schools, they should attend TRAINERS TRAINING in IDTRs/RSIs. To ensure that the needs are met driver training schools should be encouraged to come up in the PPP mode.

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11.3 Data systems

Set minimal road death and injury data reporting requirements in accordance with standards set by the International Accident Database Group (IRTAD) for national level data. Web based data systems should be established and be operational in the 12th plan period. WHO data collection manual guidelines can be used for regional and loacla studies. Strengthen road death and injury data matching capacity across the transport and health sectors at National, State and District levels. MoRTH should establish a professional agency for collection and analysis road traffic accident data in collaboration with NCRB. .

11.4 Enforcement

Promote the development and implementation of general deterrence based traffic safety enforcement programs, combined with intensive social marketing programs, targeting high-risk safety behaviours at the National, State and District levels. Establish dedicated highway safety patrol capacity on strategic high-risk roads at the National, State and District levels. Participate in the International Road Policing Organization (RoadPOL) to strengthen leadership capacity in road policing and accelerate the transfer of international best practice. Establishment of dedicated, fully equipped and trained mobile traffic police units. Development and piloting of semi-automatic traffic surveillance systems on highrisk transport corridors. Implement recommendations regarding penalties as suggested by the Sundar Committee on amendment of the MVA. Increase capacity, knowledge and skills of police agencies with regard to visible, random, uniform enforcement practices

11.5 Urban and highway safety

Promote the development and implementation of Safe System road design principles and standards that subordinate mobility requirements to safety requirements, rather than vice versa, to put the priority on enhancing the protective quality of the road network for all road users. Set and manage speed limits in accordance with the protective quality of the road environment provided rather than the desired speed behaviour of road users considering road user behaviour practices. Participate in the International Road Assessment Programme (iRAP) and develop and establish a related IndiaRAP initiative to undertake systematic and sustained assessments of road network safety performance. Development of pilot fully access controlled freeway system and adjacent structured road networks. 29

Provide service roads along all 4 and 6-lane highways. Implement most effective physical engineering countermeasures to improve road safety on around 30% of the on the existing national and state highway network, such as (countermeasures below are indicative only and should be selected through research efforts under section 5 below; research should also select highways, establish typical standards, layouts, criteria and cost-benefits) Speed control and reduction of exposure of vulnerable road users to the through traffic in built up areas; Centerline and shoulder rumble strips, which have shown to be low cost and highly effective for the reduction of run-off-the road crashes. Introduce traffic calming measures where necessary. 1% of cess money should be earmarked for engineering aspects of road safety which should be utilised for research, pilot projects for show casing, before and after studies and safety audits Cost cutting approach in road development should be abandoned and forgiving highways should be planned and provided More Expressways should be planned rather than upgrading existing 4- lane highways. Focus be on VRUs Special attention should be given to the stretches passing through linear settlements (built up areas) for conflict removal and by control of speeds. Incorporate road safety audits in the planning, design, construction and operation of the highways

11.6 Vehicle safety

At present the introduction of new safety standards is dependent on testing facilities available in the country including those at NATRIP. Since the vehicles produced in the next few years will be present on the road for about two decades, it is essential that the provision of testing facilities and introduction of new standards should be expedited. Impact standards for vehicles should be implemented on an early basis. Since a vast majority of those injured and killed comprise of pedestrians, bicyclists, and motorcyclists, India should take the lead in the introduction of pedestrian impact standards for all vehicles. Special attention should be given to evaluating modern generation ITS and active safety systems for applicability in India. India should set up a NCAP India Programme. In the first phase, cities with significant transport vehicles (Metros) should introduce a modern Inspection and Certification regime A modern inspection regime should be first introduced for commercial vehicles, and then subsequently to private vehicles. Within private vehicles, older vehicles (more than 9 years old) should be included in the regime earlier. And then it must be extended to newer fleet (3-9 year old)

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Both emissions and safety tests should be introduced simultaneously for commercial vehicles.

11.7 Pre-hospital and medical Care

Highway Rescue Standards & Guidelines Identification of corridors for Highway Rescue systems Implementation of Highway Rescue systems Enunciate a National Accident Relief Policy & a National Trauma System Plan Deployment of a Pan-India Pre-Hospital Emergency Medical Care Network to ensure a primary crash response time of 8 10 mins. This network should be adequately supported by a unified toll free number, seamless communication, centralized dispatch, medical direction, triage protocols & crash rescue units. To verify & designate the existing healthcare facilities along the Highways and upgrade those found deficient to minimum defined levels & to plan for new facilities where there is a deficit so as to ensure the availability of one emergency care facility at every 50km along the national highways. Plan for seamless networking amongst health facilities, rescue services, existing fleet of ambulances, etc. Capacity building and regular training in EMS to all involved in trauma care supplemented by training in First Aid to the public Encourage research & development into post-crash response. Establish minimum standards, guidelines and protocols for emergency and inhospital care Assured essential emergency care to all citizens of India Augmentation in capacity and resources of available Medical establishments Setting up of Regional Referral Trauma Centres in tertiary hospitals across the country. Plan for rehabilitation centres for the trauma care victims Standardize minimum national specifications for various types of Emergency Response Vehicles viz. First Responders, Patient Transport Ambulances, BLS Ambulances & ALS Ambulances, Crash Rescue Vehicles, Dispatch Centres, Command & Control Centres, etc. so as to bring homogeneity in the system across the country.

Long Term Measures (three five years for realization)

11.8 Research infrastructure

Establish eight multidisciplinary centres of excellence in the area of road traffic safety in existing institutions of repute. The centres so establish must encompass all the disciplines associated with traffic safety. Establish at least four injury research centres in medical institutions to focus on details of road traffic injury. Create job opportunities at MTech and PhD levels in MoRTh, NHAI and other road building agencies in Road Safety Units specially created for the purpose. MoRTH should establish a fund for providing 50 fellowhips for in-service professionals to attend international short term courses of repute in the area of road safety.

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MoRTH should establish a professional agency for collection and analysis road traffic accident data in collaboration with NCRB. MoRTH should sponsor an annual conference of traffic safety in collaboration with an academic institution.

12 REFERENCES

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13 APPENDIX1:NOTIFICATIONFORTHESUBGROUP
Government of India Ministry of Road Transport and Highways (Road Transport Division) No.RT-21012/4/2011-T Subject: Dated 7th June, 2011

OFFICE MEMORANDUM Constitution of the Sub-Group on Road Safety and Human Resource Development under the Working Group on Road Transport constituted by Planning Commission for the Formulation of Twelfth Five Year Plan (2012-2017).

Planning Commission vide their Order No. 18/3/2011-Tpt dated 06.04.2011 has constituted a Working Group on Road Transport for the Formulation of Twelfth Five Year Plan (2012-2017). In order to assist the Working Group in finalization of its report, Sub-Group on Road Safety and Human Resource Development in Road Transport sector has been formed with following Composition and Terms of Reference :Composition 1) Prof. Dinesh Mohan, IIT Delhi, New Delhi 2) Shri A.P. Bahadur, Retd. CE, MoRT&H 3) Representative of Road Wing, MoRTH 4) Shri A.K.Gautam, Director (Transport), Planning Commission, New Delhi 5) Shri Uday Singh Kumawat, Pr. Secretary (Transport), Bihar 6) Shri Satyendra Garg, Joint Commissioner of Police, Delhi. 7) Shri R.K. Parimoo, General Manager, Maruti Suzuki India Ltd. 8) Dr. Shakti Kumar Gupta, Head, Department of Hospital Administration & Medical Superintendent, AIIMS, New Delhi 9) Prof. G. Gururaj, Head (Epidemiology), NIMHANS, Bangalore 10) Shri Akbar Badushah, Deputy Director, ARAI, Pune. 11) Ms. Meenakshi Kukreja, SIAM, New Delhi 12) Shri Rohit Baluja, IRTE, New Delhi. 13) Shri K.K. Kapila, Chairman, IRF 14) Shri G.R. Shanmugappa, President, AIMTC, New Delhi. 15) Shri Chittranjan Dass, Secretary General , ACOGOA 16) Shri B.N. Misra, US (RS), MoRT&H Terms of Reference (TOR) i) To review the growth of road transport during the Eleventh Five Year Plan period making a critical assessment of the problems faced and the remedial action to be considered in the context of Twelfth Plan preparation. Chairman Member Member Member Member Member Member Member Member Member Member Member Member Member Member Convenor

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ii) The problem of pollution and accidents arising out of road transport operations and measures to mitigate the same including periodic inspection of new vehicles. iii) To review the existing arrangements including institutional ones to control and prevent traffic related injuries and fatalities and also suggest measures to reduce incidence of accidents. iv) Regulatory, Educational and Engineering Framework to reduce accidents by 50% in next 10 years. v) To review manpower training arrangements particularly drivers and instructors in the public / private sector and suggest improvements. vi) To review the existing manpower requirements of SRTCs and suggest measures for streamlining human resources employed by the Public Transport Corporations. vii) Any other matter considered important by the Sub Group. 2. The Chairman may co-opt other members to the Sub Group for specific inputs. 3. The expenditure towards TA/DA in connection with the meetings of the Working Group in respect of the official members will be borne by their respective Ministries/Departments. In case of Non-official members of the Working Group, expenditure towards their TA/DA would be met by the Planning Commission as admissible to the Class-I officers of the Government of India. 4. The Sub Group will forward their reports to Shri Arvind Kumar, Adviser (TR), Ministry of Road Transport & Highways, Transport Bhavan, New Delhi by 31st July, 2011 who will coordinate for finalization of the report of the Working Group. 5. Shri B.N. Misra, Under Secretary(Road Safety), Ministry of Road Transport & Highways, Transport Bhavan, New Delhi (Tele No. 23717367 Fax No. 23719097 Email bn.mishra@nic.in is Convener for this Sub-Group and any further query/communication in this regard may please be referred to him. 6. This issues with the approval of Secretary (Road Transport & Highways) and Chairman of the Working Group. (Nandan Singh) Dy. Secretary (Transport) Tele. Fax No. 23321729. Email: nandan.singh@nic.in To 1. 2. 3. 4. Chairman of the Sub-Group. All the Members of the Sub-Group Shri M. Ravindranath, Adviser (Transport), Planning Commission, Yojana Bhavan, New Delhi (Tel.No. 23096536). Director General (Road Development), MORTH, Room No. 208, Transport Bhavan, New Delhi with the request that a suitable representative of Road Wing may please be nominated in the aforementioned Sub-Group at the earliest so that he/she may be invited to attend the first meeting of SubGroup, to be convened shortly.

Copy to: PS to Secretary (RT&H) / PS to Joint Secretary (T) / Adviser (TR)/ Guard File

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Addresses of Sub-Group on Road Safety and Human Resource Development

1) Prof. (Dr.) Dinesh Mohan, TRIPP, Room MS 815 Main Building Indian Institute of Technology, Hauz Khas, New Delhi-110016. Mob 9811201785 Email: dmohan@cbme.iitd.ac.in Shri A.P. Bahadur, Retd. Chief Engineer, MoRTH Asian Development Bank (PPP Expert) Flat No. 53, Haryana Officers Transit Flat, Sector 12A, Panchkula (Haryana)- 134115 Mob. No. 09876093333 email: bahadur_ap@hotmail.com Shri A.K.Gautam, Director (Tpt), Planning Commission, Yojana Bhawan, Sansad Marg, New Delhi-110001 Tel. 23096706 Ext. 2496 Email ashokkr.gautam@nic.in Shri .Uday Singh Kumawat, Commissioner-cum-Secretary (Transport), Govt. of Bihar, Transport Department, Patna 800 001. Tel. 2233362 Fax 0612 - 2233914 Shri Satyendra Garg, Joint Commissioner of Police (Traffic), 9th Floor, M S O Building I P Estate Delhi - 110002. Tele No. 23490221 Fax No. 23490436 Email : jtcpt_dtp@nic.in Shri R.K. Parimoo, General Manager, Maruti Suzuki India Limited Nelson Mandela Road, Vasant Kunj, NewDelhi-110070 Board no.46781000 Fax : 46150275 and 46150276 . Dr. Shakti Kumar Gupta, Head Department of Hospital Administration & Medical Superintendent, AIIMS, 1st Flr., OPD Blk.Ansari Nagar, New Delhi Email: shakti810505@gmail.com Tele No. 26593029, 26588190 Mob. No. 9818837782 39

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Prof. G. Gururaj, Head (Epidemiology), NIMHANS, Hosur Road Bangalore 560029 Shri Akbar Badushah, Deputy Director, The Automotive Research Association of India, S.No. 102, Vetal Hill, Off Paud Road, Kothrud, Pune-411 038 Tel.: 020-3023 1111, Fax. No. 020-2543 4190 Email ID: director@araiindia.com Ms. Meenakshi Kukreja, Society of Indian Automobile Manufactures, Core 4-B, 5th Floor, India Habitat Centre, New Delhi-110 003. Shri Rohit Baluja, Institute of Road Traffic Education, B-128, DDA Sheds, Okhla Industrial Area, Phase-I, New Delhi-110020. Shri K.K. Kapila, Chairman, IRF India c/o Intercontinental Consultants & Technocrats (ICT) A-8 Green Park New Delhi 110016 Shri G.R. Shanmugappa, President, All India Motor Transport Congress (AIMTC), 1/16, Asaf Ali Road, New Delhi-110 002. Tel. 23232617, Telefax: 23230864 Email ID: aimtc@rediffmail.com Shri Chittranja Dass, Secretary General, All India Confederation of Goods Vehicle Owners Association, 2/5136, Krishan Nagar, Ganga Mandir Marg, Dev Nagar, New Delhi-110005 Tel. 28726221, Fax. No. 28724703 Email ID: aicogoa@yahoo.co.in Shri B.N. Misra, Under Secretary (Road Safety), Ministry of Road Transport & Highways, Transport Bhavan, New Delhi-110001. Email ID:bn.mishra@nic.in Tele No. 23717367 Fax No. 23719097.

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