LAW COMMISSION OF INDIA-234 TH REPORT ON MOTOR ACCIDENTS

LEGAL REFORMS TO COMBAT ROAD ACCIDENTS

CONTENTS

pp.

1. Perspective 9 - 12

2. Present law in India 13 - 24

(i) Indian Penal Code, 1860

(ii) Motor Vehicles Act, 1988

3. Position in UK 25 - 31

4. Previous Reports of the Law Commission of India 32 - 35

and its recommendations

5. Pending Motor Vehicles (Amendment) Bill, 2007 36 - 46

6. Proposed Road Safety and Traffic Management 47 - 63

Boards and National Road Safety Policy

7. Pedestrians and Non-motorized Traffic 64 - 76

8. Recommendations 77 - 82

1. Perspective

1.1 India has one of the largest road networks in the world, of 3.314

million kilometers, consisting of National Highways, Expressways, State

Highways, Major District Roads, Other District Roads and Village

Roads. About 65 per cent of freight and 86.7 per cent passenger traffic is

carried by the roads.1 Motor vehicle population has recorded significant

growth over the years. India had 72.718 million registered motor vehicles

at the end of the fiscal year 2003-04. Compound annual growth rate of

the vehicle population between 1951 and 2004 was close to 11 per cent.

Two-wheelers and cars (personalized mode of transport) constitute more

than four-fifth of the motor vehicles in the country.2 Roads are used not

only by the motorized transport, but also by the non-motorized transport

as well as pedestrians.

1.2 According to Maruti Suzuki weblog, more than 100,000 Indians

are dying every year in road accidents. More than a million are injured or

maimed. Many years ago, a study found that road accidents cost the

country some Rs. 550 billion every year.3

1.3 According to ‘Down To Earth’ (Science and Environment Online),

ill-planned motorization kills one person every six minutes on India’s

roads. Road accidents in 1999-2000 cost India about 3 per cent of its

GDP. During 1970-2005, registered motor vehicles increased 50 times,

but road networks grew less than three times. Accidents increased

fourfold; injuries and fatalities also shot up more than six times. Severity

of accidents – persons killed per 100 accidents – increased due to lack of

1 Department of Road Transport and Highway’s Annual Report 2007-08

2 National Road Transport Policy recommended by Thangaraj Committee

3 http://www.marutisuzuki.com, visited 07.04.2008

footpaths, cycle tracks and traffic measures to check speed where

motorized merges with non-motorized. In 2005, there were 439,255 road

accidents – 1,205 accidents daily – which killed about 95,000 people;

injuring more than 465,282. National and State Highways account for 5.8

per cent of the total road length, but account for 50 per cent of the total

accidents. Other roads, with 94.2 per cent of the total road length,

witnessed 46.8 per cent of the total accidents. Bulk transport vehicles

(buses, trucks) make up 7.5 per cent of all registered vehicles, but caused

30 per cent of the accidents; about 38 per cent of deaths.4

1.4 The Pioneer has reported that the number of fatalities on Indian

roads in 2006-07 increased to 1,05,749. India’s share in world fatalities

is increasing. So far, China topped the list of most number of fatal road

accidents and India finished a close second. However, the latest statistics

show that while China has managed to decrease its fatalities, India has

not learnt much. The total road length of India is about 12 per cent of the

total world road network, but India’s percentage in road injury is 5.4 per

cent of the world total.5

1.5 According to the Indian Express, road accidents increased in the

country by 4.9 per cent from 2005 to 2006 and 20 per cent of the road

accidents were fatal – there was one fatality per 4.4 road accidents.6

1.6 A recent survey by the Central Road Research Institute reveals that

more than 90% pedestrians feel unsafe while crossing roads, while they

comprise more than 50% of road victims.7

4 http://www.downtoearth.org.in, visited 23.05.2008

5 The Pioneer, New Delhi, 24.03.2008

6 The Indian Express, New Delhi, 24.04.2008

7 The Times of India, New Delhi, 27.06.2008

1.7 Is it due to lack of apt provisions in our law that travel through

Indian roads is a tryst with Death? This crucial question has been

engaging the attention of the Law Commission of India for quite

some time.

1.8 All the more so because despite the directions of the Supreme

Court given to the Police and all other authorities entrusted with the

administration and enforcement of the Motor Vehicles Act, 1988 and

generally with the control of the traffic8 and the Delhi High Court’s

Order dated 10.07.07 in WP (Crl) 878/2007 (to be numbered by the

Registry) in regard to traffic safety, reckless driving by the blue line

buses on Delhi roads has not diminished.

1.9 The Navbharat Times has reported that in the Annual Press

Conference of Delhi Police, it was revealed that 8,270 road accidents

were recorded in 2007, in which 2,050 persons died. There were 376

road accidents involving blue line buses in which 118 persons died. The

notable feature was that 38 per cent were hit and run cases wherein the

vehicles involved could not be traced. Another notable feature was that

53 per cent of the persons who died in road accidents were pedestrians

and 28 per cent were two-wheeler drivers. 3.98 million challans were

issued for various traffic violations, for which Rs. 980 million were

recovered.9

1.10 Driving recklessly/dangerously, non-observance of traffic rules,

like crossing speed limit, jumping red light, driving without driving

licence, driving by untrained/disqualified driver, driving by minor,

driving under the influence of liquor, driving while talking on mobile,

8 M.C. Mehta v. Union of India AIR 1998 SC 190

9 Navbharat Times, New Delhi, 03.01.2008

driving without helmet, ill-health of vehicle and bad road infrastructure

are amongst the causes of road accidents. We may also note the

following description of the chaotic conditions prevailing on Indian

roads, in the words of Hon’ble Mr. Justice V. R. Krishna Iyer:

“More people die of road accidents than by most diseases, so much

so the Indian highways are among the top killers of the country….

“Parking of heavy vehicles on the wrong side, hurrying past traffic

signals on the sly, neglecting to keep to the left of the road, driving

vehicles criss-cross, riding scooters without helmets and with

whole families on pillions, thoughtless cycling and pedestrian gay

walking with lawless ease, suffocating jam-packing of stage

carriages and hell-driving of mini-buses, overloading of trucks

with perilous projections and, above all, policemen, if any, proving

by helpless presence that law is dead in this milieu charged with

melee – such is the daily, hourly scene of summons by Death to

innocent persons who take to the roads, believing in the bona fides

of the traffic laws.”10

1.11 In view of the above, the Law Commission prepared a

Consultation Paper on this important subject taken up suo motu, with a

view to elicit views/suggestions/comments from all those concerned. The

recommendations in this Report have been made after taking into

consideration the responses received.

2. Present law in India

(i) Indian Penal Code, 1860

2.1 The Indian Penal Code (IPC) provides the general penal code of

India, impliedly assuming the possibility of existence of special statutes

defining offences and prescribing punishments therefor, for example, the

Motor Vehicles Act, 1988 in the present context.

10 Rattan Singh v. State of Punjab (1979) 4 SCC 719

2.2 Sections 279, 304A, 336, 337, 338, IPC are relevant and

reproduced below:

Section 279. Rash driving or riding on a public way. “Whoever

drives any vehicle, or rides, on any public way in a manner so rash

or negligent as to endanger human life, or to be likely to cause hurt

or injury to any other person, shall be punished with imprisonment

of either description for a term which may extend to six months, or

with fine which may extend to one thousand rupees, or with both.”

Section 304A. Causing death by negligence. “Whoever causes the

death of any person by doing any rash or negligent act not

amounting to culpable homicide, shall be punished with

imprisonment of either description for a term which may extend to

two years, or with fine, or with both.”

Section 336. Act endangering life or personal safety of others.

“Whoever does any act so rashly or negligently as to endanger

human life or the personal safety of others, shall be punished with

imprisonment of either description for a term which may extend to

three months, or with fine which may extend to two hundred and

fifty rupees, or with both.”

Section 337. Causing hurt by act endangering life or personal

safety of others. “Whoever causes hurt to any person by doing any

act so rashly or negligently as to endanger human life, or the

personal safety of others, shall be punished with imprisonment of

either description for a term which may extend to six months, or

with fine which may extend to five hundred rupees, or with both.”

Section 338. Causing grievous hurt by act endangering life or

personal safety of others. “Whoever causes grievous hurt to any

person by doing any act so rashly or negligently as to endanger

human life, or the personal safety of others, shall be punished with

imprisonment of either description for a term which may extend to

two years, or with fine which may extend to one thousand rupees,

or with both.”

2.3 Rash or negligent act is an ingredient in all the above sections. A

rash act is primarily an overhasty act, opposed to a deliberate act, but it

also includes an act which, though it may be said to be deliberate, is yet

done without due deliberation and caution. In rashness, the criminality

lies in running the risk of doing an act with recklessness or indifference

to consequences. Negligence means breach of duty caused by omission

to do something which a reasonable man guided by those considerations

which ordinarily regulate conduct of human affairs would do or doing

something which a prudent or reasonable man would not do. Culpable

negligence is acting without consciousness that illegal or mischievous

effects will follow, but in circumstances which show that the actor has

not exercised the caution incumbent on him, and that if he had, he would

have had the consciousness. Generally, in the case of rashness, the guilty

person does an act and breaks a positive duty; in the case of negligence,

he does not do an act which he was bound to do, because he adverts not

to it. ‘Rashness’ conveys the idea of recklessness or the doing of an act

without due consideration; ‘negligence’ connotes want of proper care or

the standard of conduct which a reasonably prudent person would

exercise in a similar situation.

2.4 To be guilty of an offence under section 279, IPC the accused must

drive a vehicle in such a rash or negligent manner as to endanger human

life or to be likely to cause hurt or injury to any other person. Driving at a

high speed or non-sounding of horn by itself does not mean that the

driver is rash or negligent. Place, time, traffic and crowd are important

factors to determine rashness or negligence.

2.5 Section 304A, which was inserted in the IPC by Act 25 of 1870,

postulates a rash and negligent act entailing death of another. The

provisions of this section apply to cases where there is no intention to

cause death, and no knowledge that the act done in all probability would

cause death; it should not amount to culpable homicide. Section 304A is

directed at offences outside the range of sections 299 and 300, IPC.11

Section 279 covers only those cases which relate to driving on public

way endangering human life, while offence under section 304A extends

to any rash or negligent act falling short of culpable homicide.

2.6 Rash and negligent acts which endanger human life, or the

personal safety of others, are punishable under section 336 even though

no harm follows, and are additionally punishable under sections 337 and

338 if they cause hurt, or grievous hurt. Element of volition or intention

is foreign to the set of offences under sections 336 to 338, IPC. Offences

defined by these sections as well as section 279 are minor offences in

comparison with the offence under section 304A where death is caused

by a rash or negligent act.

2.7 Recently, the Supreme Court has observed that if a person

willfully drives a motor vehicle into the midst of a crowd and thereby

causes death to some person, it will not be a case of mere rash and

negligent driving and the act would amount to culpable homicide.12

2.8 Dealing with sentencing of a convict for offences under sections

279 and 304A, IPC, the Supreme Court in Dalbir Singh v. State of

Haryana13 held:

“When automobiles have become death traps any leniency shown

to drivers who are found guilty of rash driving would be at the risk

11Naresh Giri v. State of M.P. 2007(13) SCALE 7

12The Times of India, New Delhi, 14.11.2007

13 (2000) 5 SCC 82

of further escalation of road accidents. All those who are manning

the steering of automobiles, particularly professional drivers, must

be kept under constant reminders of their duty to adopt utmost care

and also of the consequences befalling them in cases of

dereliction. One of the most effective ways of keeping such

drivers under mental vigil is to maintain a deterrent element in the

sentencing sphere. Any latitude shown to them in that sphere

would tempt them to make driving frivolous and a frolic.

…

13. Bearing in mind the galloping trend in road accidents in India

and the devastating consequences visiting the victims and their

families, criminal courts cannot treat the nature of the offence

under Section 304-A IPC as attracting the benevolent provisions of

Section 4 of the Probation of Offenders Act. While considering

the quantum of sentence to be imposed for the offence of causing

death by rash or negligent driving of automobiles, one of the prime

considerations should be deterrence. A professional driver pedals

the accelerator of the automobile almost throughout his working

hours. He must constantly inform himself that he cannot afford to

have a single moment of laxity or inattentiveness when his leg is

on the pedal of a vehicle in locomotion. He cannot and should not

take a chance thinking that a rash driving need not necessarily

cause any accident; or even if any accident occurs it need not

necessarily result in the death of any human being; or even if such

death ensues he might not be convicted of the offence; and lastly,

that even if he is convicted he would be dealt with leniently by the

court. He must always keep in his mind the fear psyche that if he

is convicted of the offence for causing death of a human being due

to his callous driving of the vehicle he cannot escape from a jail

sentence. This is the role which the courts can play, particularly at

the level of trial courts, for lessening the high rate of motor

accidents due to callous driving of automobiles.”

2.9 In Rattan Singh v. State of Punjab14, the Supreme Court had held:

“5. Nevertheless, sentencing must have a policy of correction.

This driver, if he has to become a good driver, must have a better

training in traffic laws and moral responsibility, with special

reference to the potential injury to human life and limb.

14 Supra note 10

Punishment in this area must, therefore, be accompanied by these

components. The State, we hope, will attach a course for better

driving together with a livelier sense of responsibility, when the

punishment is for driving offences.”

2.10 Very recently, the Supreme Court upheld the sentence of

imprisonment awarded to the driver of a bus convicted for offences under

sections 279 and 304A, IPC, following the above dicta.15

(ii) Motor Vehicles Act, 1988

2.11 The Motor Vehicles Act, 1988 (MVAct) is the principal

instrument for regulating motor vehicles. Chapter II relates to licensing

of drivers of motor vehicles, wherein section 19 confers power on the

licensing authority to disqualify any person from holding a driving

licence or revoke such licence, if he -

(a) is a habitual criminal or a habitual drunkard; or

(b) is a habitual addict to any narcotic drug or psychotropic

substance; or

cognizable offence; or

(d) has, by his previous conduct as driver of a motor vehicle

shown that his driving is likely to be attended with danger to

the public; or

(e) has obtained any driving licence or a licence to drive a

particular class or description of motor vehicle by fraud or

misrepresentation; or

15 B. Nagabhushanam v. State of Karnataka 2008 (7) SCALE 716

(f) has committed any such act which is likely to cause nuisance

or danger to the public, as may be prescribed by the Central

Government, having regard to the objects of this Act; or

(g) has failed to submit to, or has not passed, the tests referred to

in the proviso to sub-section (3) of Section 22; or

(h) being a person under the age of eighteen years who has been

granted a learner’s licence or a driving licence with the

consent in writing of the person having the care of the holder

of the licence and has ceased to be in such care.

2.12 We may now note the provisions of sections 20 to 23 of the

MVAct, extracts whereof are reproduced below:

Section 20. Power of Court to disqualify. “(1) Where a person is

convicted of an offence under this Act or of an offence in the

commission of which a motor vehicle was used, the Court by

which such person is convicted may, subject to the provisions of

this Act, in addition to imposing any other punishment authorized

by law, declare the person so convicted to be disqualified, for such

period as the Court may specify, from holding any driving licence

to drive all classes or description of vehicles, or any particular

class or description of such vehicles, as are specified in such

licence:

Provided that in respect of an offence punishable under

section 183 no such order shall be made for the first or second

offence.

(2) Where a person is convicted of an offence under clause (c) of

sub-section (1) of section 132, section 134 or section 185, the

Court convicting any person of any such offence shall order

the disqualification under sub-section (1), and if the offence is

relatable to clause (c) of sub-section (1) of section 132 or

section 134, such disqualification shall be for a period of not

less than one month, and if the offence is relatable to section

185, such disqualification shall be for a period of not less than

six months.

(3) A Court shall, unless for special reasons to be recorded in

writing it thinks fit to order otherwise, order the

disqualification of a person,-

(a) who having been convicted of an offence punishable

under section 184 is again convicted of an offence

punishable under that section;

(b) who is convicted of an offence punishable under

section 189; or

section 192:

Provided that the period of disqualification shall not exceed,

in the case referred to in clause (a), five years, or in the case

referred to in clause (b), two years or, in the case referred to in

clause (c), one year.

(4) A Court ordering the disqualification of a person convicted of

an offence punishable under section 184 may direct that such

person shall, whether he has previously passed the test of

competence to drive as referred to in sub-section (3) of

section 9 or not, remain disqualified until he has subsequent

to the making of the order of disqualification passed that test

to the satisfaction of the licensing authority.

….”

Section 21. Suspension of driving licence in certain cases. “(1)

Where, in relation to a person who had been previously convicted

of an offence punishable under section 184, a case is registered by

a police officer on the allegation that such person has, by such

dangerous driving as is referred to in the said section 184, of any

class or description of motor vehicle caused the death of, or

grievous hurt to, one or more persons, the driving licence held by

such person shall in relation to such class or description of motor

vehicle become suspended,-

(a) for a period of six months from the date on which the

case is registered; or

(b) if such person is discharged or acquitted before the

expiry of the period aforesaid, until such discharge or

acquittal, as the case may be.

….”

Section 22. Suspension or cancellation of driving licence on

conviction. “(1) Without prejudice to the provisions of sub-section

(3) of section 20, where a person, referred to in sub-section (1) of

section 21, is convicted of an offence of causing, by such

dangerous driving as is referred to in section 184 of any class or

description of motor vehicle, the death of, or grievous hurt to, one

or more persons, the Court by which such person is convicted may

cancel, or suspend, for such period as it may think fit, the driving

licence held by such person in so far as it relates to that class or

description of motor vehicle.

(2) Without prejudice to the provisions of sub-section (2) of

section 20, if a person, having been previously convicted of an

offence punishable under section 185, is again convicted of an

offence punishable under that section, the Court, making such

subsequent conviction, shall, by order, cancel the driving licence

held by such person.

….”

Section 23. Effect of disqualification order. “(1) A person in

respect of whom any disqualification order is made under section

19 or section 20 shall be debarred to the extent and for the period

specified in such order from holding or obtaining a driving licence

and the driving licence, if any, held by such person at the date of

the order shall cease to be effective to such extent and during such

period.

….”

2.13 Chapter VIII of the MVAct deals with the control of traffic.

Section 112 pertains to limits of speed and prohibits driving of a motor

vehicle or it being allowed to be driven in any public place at a speed

exceeding the maximum permissible speed. Rule 118 of the Central

Motor Vehicles Rules, 1989 provides for notified transport vehicles to be

fitted with a speed governor in such a manner that the speed governor

can be sealed with an official seal in such a way that it cannot be

removed or tampered with without the seal being broken.16 Section 113

16 The Karnataka High Court has very recently directed the State Government to

ensure that no new public transport vehicles shall be registered in the State unless they

are fitted with speed governors and gave three months to owners to fit all old vehicles

(which have already been registered) with speed governors (vide The Hindu, New

Delhi, 01.07.2008).

provides for limits of weight and limitations on use. Section 118 confers

power on the Central Government to make regulations for the driving of

motor vehicles. Accordingly, the Rules of the Road Regulations, 1989

have been made. Section 119 provides for the duty to obey traffic signs.

Section 129 provides for the wearing of helmets. Various other

provisions are contained in Chapter VIII for regulation of traffic.

2.14 The Rules of the Road Regulations, 1989 contain detailed

provisions regulating driving of motor vehicles, like keeping left,

overtaking prohibited, caution at road junction, right of way to

pedestrians, signals to be given by drivers, parking, visibility of lamps

and registration marks, lane driving, respecting stop sign on road surface,

distance from vehicles in front, no abrupt brake except for safety reasons,

no projection of loads, non-carriage of dangerous substances on any

public service vehicle, restriction on driving backwards, carrying of

documents, viz., driving licence, certificate of registration, certificate of

insurance of the vehicle and in case of transport vehicle the permit and

fitness certificate also.

2.15 Chapter XIII of the MVAct relates to offences, penalties and

procedure. Section 177 contains the general provision for punishment of

offences, which is available in the absence of any specific provision for

punishment applicable in a given case; the punishment is a maximum

fine of Rs. 100/- for the first offence and for the subsequent offence it is

only Rs. 300/-. Section 183 provides the punishment for contravention of

the speed limits referred to in section 112. Section 184 provides for

punishment for dangerous driving and section 185 for driving by a

drunken person or a person under the influence of drugs. These sections

read as under:

Section 184. Driving dangerously. “Whoever drives a motor

vehicle at a speed or in a manner which is dangerous to the public,

having regard to all the circumstances of the case including the

nature, condition and use of the place where the vehicle is driven

and the amount of traffic which actually is at the time or which

might reasonably be expected to be in the place, shall be

punishable for the first offence with imprisonment for a term

which may extend to six months or with fine which may extend to

one thousand rupees, and for any second or subsequent offence, if

committed within three years of the commission of a previous

similar offence, with imprisonment for a term which may extend to

two years, or with fine which may extend to two thousand rupees,

or with both.”

Section 185. Driving by a drunken person or by a person under

the influence of drugs. “Whoever, while driving, or attempting to

drive, a motor vehicle,-

(a) has, in his blood, alcohol exceeding 30 mg. per 100

ml. of blood detected in a test by a breath analyzer, or

(b) is under this influence of drug to such an extent as to

be incapable of exercising proper control over the

vehicle,

shall be punishable for the first offence with imprisonment for a

term which may extend to six months, or with fine which may

extend to two thousand rupees, or with both; and for a second or

subsequent offence, if committed within three years of the

commission of the previous similar offence, with imprisonment for

a term which may extend to two years, or with fine which may

extend to three thousand rupees, or with both.

Explanation.- For the purposes of this section, the drug or drugs

specified by the Central Government in this behalf, by notification

in the Official Gazette, shall be deemed to render a person

incapable of exercising proper control over a motor vehicle.”

2.16 Section 184 deals with reckless driving dangerous to the public

having regard to all the circumstances of the case. Offence defined under

section 184 and the offence under section 279, IPC are essentially the

same. No person is supposed to drive a motor vehicle on any public way

in a manner which may endanger human life or is likely to cause hurt or

injury to any other person. The law casts a duty on every user of the road

or public way to exercise due care and caution while driving a motor

vehicle. The amount of care and caution required to be exercised by a

driver while driving on a public way would, of course, depend upon the

situation and circumstances in which he is driving. The doctrine of

contributory negligence has no application in criminal law. Contributory

negligence may be a factor for consideration in determining the sentence,

but it is not a defence entitling the accused to an acquittal.

2.17 Certain other provisions of Chapter XIII providing punishments

are: section 180: allowing unauthorized persons to drive vehicles; section

181: driving vehicles in contravention of section 3 (necessity for driving

licence) or section 4 (age limit in connection with driving of motor

vehicles); section 182: offences relating to licences; section 182A:

offences relating to construction and maintenance of vehicles; section

186: driving when mentally or physically unfit to drive; section 187:

offences relating to accident; section 188: abetment of offence under

section 184, 185 or 186; section 189: racing and trials of speed; section

190: using vehicle in unsafe condition; section 191: sale of vehicle in, or

alteration of vehicle to, a condition contravening the Act; section 192:

using vehicle without registration; section 192A: using vehicle without

permit; section 193: agents and canvassers acting without proper

authority; section 194: driving vehicle exceeding permissible weight;

section 196: driving uninsured vehicle; section 197: taking vehicle

without authority; section 198: unauthorized interference with vehicle;

section 201: causing obstruction to free flow of traffic. Section 207

confers power on any police officer or other person authorized in this

behalf to seize and detain a motor vehicle, if he has reason to believe that

it has been or is being used in contravention of the specified provisions,

posing a serious threat to the public.

2.18 We may also note section 8B of the National Highways Act, 1956,

which provides that whoever commits mischief by doing any act which

renders or which he knows to be likely to render a national highway in

relation to whose development and maintenance there is an agreement,

impassable or less safe for travelling or conveying property, shall be

punished with imprisonment of either description for a term which may

extend to five years, or with a fine, or with both.

3. Position in UK

3.1 The principal enactments relating to road traffic are the Road

Traffic Act 1988 and the Road Traffic Offenders Act 1988 (both as

amended and extended by the Road Traffic Act 1991), the Road Traffic

(Consequential Provisions) Act, 1988 and the Road Safety Act 2006.

Nothing in these Acts authorizes a person to use on a road a vehicle so

constructed or used as to cause a public or private nuisance, or affects the

liability, whether under statute or common law, of the driver or owner so

using such a vehicle.17 Separate enactments govern the taxation, licensing

17 Halsbury’s Laws of England, 4th ed. Reissue (2000), vol. 40(1), Para 2

and registration of all road vehicles and the operation and special

licensing of goods vehicles and passenger vehicles. There is also

legislation containing powers for controlling traffic, parking, speed limits

and other matters (see the Road Traffic Regulation Act 1984).18

3.2 The following are certain of offences under the Road Traffic Act

1988:

Section 1. Causing death by dangerous driving. “A person who

causes the death of another person by driving a mechanically

propelled vehicle dangerously on a road or other public place is

guilty of an offence.”

Section 2. Dangerous driving. “A person who drives a

mechanically propelled vehicle dangerously on a road or other

public place is guilty of an offence.”

Section 2A. Meaning of dangerous driving. “(1) For the

purposes of sections 1 and 2 above a person is to be regarded as

driving dangerously if (and, subject to sub-section (2) below, only

if)-

(a) the way he drives falls far below what would be expected

of a competent and careful driver, and

(b) it would be obvious to a competent and careful driver

that driving in that way would be dangerous.

(2) A person is also to be regarded a driving dangerously for the

purposes of sections 1 and 2 above if it would be obvious to a

competent and careful driver that driving the vehicle in its current

state would be dangerous.

(3) In subsections (1) and (2) above “dangerous” refers to

danger either of injury to any person or of serious damage to

18 ibid.

property; and in determining for the purposes of those subsections

what would be expected of, or obvious to, a competent and careful

driver in a particular case, regard shall be had not only to the

circumstances of which he could be expected to be aware but also

to any circumstances shown to have been within the knowledge of

the accused.

(4) In determining for the purposes of subsection (2) above the

state of a vehicle, regard may be had to anything attached to or

carried on or in it and to the manner in which it is attached or

carried.”

Section 2B. Causing death by careless, or inconsiderate, driving.

“A person who causes the death of another person by driving a

mechanically propelled vehicle on a road or other public place

without due care and attention, or without reasonable

consideration for other persons using the road or place, is guilty of

an offence.”

Section 3. Careless, and inconsiderate, driving. “If a person drives

a mechanically propelled vehicle on a road or other public place

without due care and attention, or without reasonable

consideration for other persons using the road or place, he is guilty

of an offence.”

Section 3ZA. Meaning of careless, or inconsiderate, driving. “(1)

This section has effect for the purposes of sections 2B and 3 above

and section 3A below.

(2) A person is to be regarded as driving without due care and

attention if (and only if) the way he drives falls below what would

be expected of a competent and careful driver.

(3) In determining for the purposes of subsection (2) above

what would be expected of a careful and competent driver in a

particular case, regard shall be had not only to the circumstances

of which he could be expected to be aware but also to any

circumstances shown to have been within the knowledge of the

accused.

(4) A person is to be regarded as driving without reasonable

consideration for other persons only if those persons are

inconvenienced by his driving.”

Section 3ZB. Causing death by driving: unlicensed, disqualified

or uninsured drivers. “A person is guilty of an offence under this

section if he causes the death of another person by driving a motor

vehicle on a road and, at the time when he is driving, the

circumstances are such that he is committing an offence under-

(a) section 87(1) of this Act (driving otherwise than in

accordance with a licence),

(b) section 103(1)(b) of this Act (driving while disqualified),

uninsured or unsecured against third part risks).”

Section 3A. Causing death by careless driving when under

influence of drink or drugs. “(1) If a person causes the death of

another person by driving a mechanically propelled vehicle on a

road or other public place without due care and attention, or

without reasonable consideration for other persons using the road

or place, and –

(a) he is, at the time when he is driving, unfit to drive

through drink or drugs, or

(b)he has consumed so much alcohol that the proportion of

it in his breath, blood or urine at that time exceeds the

prescribed limit, or

a specimen in pursuance of section 7 of this Act, but

without reasonable excuse fails to provide it, or

(d)he is required by a constable to give his permission for

laboratory test of a specimen of blood taken from him

under section 7A of this Act, but without reasonable

excuse fails to do so,

he is guilty of an offence.

(2) For the purposes of this section a person shall be taken to be

unfit to drive at any time when his ability to drive properly

is impaired.

(3) Subsection (1)(b), (c) and (d) above shall not apply in

relation to a person driving a mechanically propelled vehicle

other than a motor vehicle.”

Section 4. Driving, or being in charge, when under influence of

drink or drugs. “(1) A person who, when driving or attempting to

drive a mechanically propelled vehicle on a road or other public

place, is unfit to drive through drink or drugs is guilty of an

offence.

(2) Without prejudice to subsection (1) above, a person who,

when in charge of a mechanically propelled vehicle which is on a

road or other public place, is unfit to drive through drink or drugs

is guilty of an offence.

(3) For the purposes of subsection (2) above, a person shall be

deemed not to have been in charge of a mechanically propelled

vehicle if he proves that at the material time the circumstances

were such that there was no likelihood of his driving it so long as

he remained unfit to drive through drink or drugs.

(4) The court may, in determining whether there was such a

likelihood as is mentioned in subsection (3) above, disregard any

injury to him and any damage to the vehicle.

(5) For the purposes of this section, a person shall be taken to

be unfit to drive if his ability to drive properly is for the time being

impaired.

….”

Section 5. Driving or being in charge of a motor vehicle with

alcohol concentration above prescribed limit. “(1) If a person –

(a) drives or attempts to drive a motor vehicle on a road or

other public place, or

(b) is in charge of a motor vehicle on a road or other public

place,

after consuming so much alcohol that the proportion of it in his

breath, blood or urine exceeds the prescribed limit he is guilty of

an offence.

(2) It is a defence for a person charged with an offence under

subsection (1)(b) above to prove that at the time he is alleged to

have committed the offence the circumstances were such that there

was no likelihood of his driving the vehicle whilst the proportion

of alcohol in his breath, blood or urine remained likely to exceed

the prescribed limit.

(3) The court may, in determining whether there was such a

likelihood as is mentioned in subsection (2) above, disregard any

injury to him and any damage to the vehicle.”

3.3 As per Part I of Schedule 2 to the Road Traffic Offenders Act

1988, each of the offences of causing death by dangerous driving,

causing death by careless or inconsiderate driving, and causing death by

careless driving when under influence of drink or drugs, is punishable

with maximum imprisonment of five years. Each of the offences of

dangerous driving, and causing death by driving by unlicensed,

disqualified or uninsured drivers, is punishable with maximum

imprisonment of two years. The offence of careless, and inconsiderate,

driving is punishable only with fine, but of the Level 5 on the standard

scale19. Each of the offences of driving or attempting to drive when unfit

to drive through drink or drugs, and driving or attempting to drive with

excess alcohol in breath, blood or urine, is punishable with maximum

imprisonment of six months. Each of the offences of being in charge of a

19 “standard scale” is a system whereby fines in legislation have maximum levels set

against a standard scale; then, when inflation makes it necessary to increase the levels

of fines, the legislators need to modify only the scale rather than each individual piece

of legislation. The standard scale of fines is only for summary offences, as laid down

under section 37 of the Criminal Justice Act 1982; there are 5 Levels on the scale: the

amount of fine for Level 1 is pound 200; for Level 2 it is pound 500; for Level 3 it is

pound 1,000; for Level 4 it is pound 2,500; for Level 5 it is pound 5,000.

mechanically propelled vehicle when unfit to drive through drink or

drugs, and being in charge of a motor vehicle with excess alcohol in

breath, blood or urine, is punishable with maximum imprisonment of

three months. Some of these offences are also punishable with fine in the

alternative or with both.

3.4 Other offences under the Road Traffic Act 1988 and other statutes,

include offences of dangerous cycling on a road, careless, and

inconsiderate, cycling on a road, cycling on a road when under the

influence of drink or drugs, motor racing on public ways, unauthorized

cycle races on public ways, parking heavy goods vehicles on the verge of

a road, driving or parking on cycle tracks, causing danger to road users,

leaving vehicles in dangerous positions on a road, causing or permitting

a dog without being held on a lead, wanton or furious racing or driving,

riding or driving on roadside footways and tethering animals on a

highway, non-observance of the rule of the road, and other offences in

relation to road traffic consisting of failure to observe the statutory

requirements such as those relating to the wearing of seat belts,

unroadworthy vehicles, unauthorized protective helmets for motor

cyclists, excise licences, driving licences, insurance, parking, traffic

signs, speed limits, public service vehicle licences, goods vehicle

licensing and wrongful use of a disabled person’s badge.

3.5 Most of the offences concerning road traffic are summary

offences, punishable with different Levels on the standard scale, also

involving obligatory or discretionary disqualification (to hold or obtain a

licence), or obligatory endorsement of penalty points20 attributable to the

20 A penalty point is essentially a formal reprimand; its aim is to influence and improve

driver behaviour. Reaching a particular number of penalty points leads to

disqualification. Penalty points stay for a particular period only.

offence, attracting the same, on the driving record, to be taken into

consideration on subsequent conviction. Certain road traffic offences are

dealt with by way of a fixed penalty rather than by way of prosecution.

4. Previous Reports of the Law Commission of India and

its recommendations

4.1 The 42nd Report of the Law Commission of India, submitted in

June, 1971, examined the provisions of the IPC, and its relevant

paragraphs are reproduced below:

Para 14.8. Section 279 amended. “Section 279 deals with the

offence of rash driving of a vehicle on a public way. We propose

to make the fine under this section unlimited by omitting the words

‘which may extend to one thousand rupees’.”

Para 14.9. New section 279A – Dangerously overloaded vehicles.

There is, however, no provision corresponding to section 282

under which carrying passengers in a boat which is unsafe either

because of its condition or because of its load is an offence. A

similar provision should, in our opinion, be made for taking on the

road an unsafe vehicle, and we suggest the addition of a new

section 279A as follows:-

‘279A. Driving unsafe or overloaded vehicle on a public

way. Whoever knowingly or negligently drives any vehicle

on a public way when that vehicle is in such a state or so

loaded as to endanger life, shall be punished with

imprisonment of either description for a term which may

extend to six months, or with fine, or with both.’.”

Para 16.21. Section 304A and quality of negligence. “Section 304A

deals with homicide by a rash or negligent act. That the negligence

mentioned in the section is not of the same type as in civil disputes

has been made clear by judicial decisions. In civil cases, courts

insist on a maximum standard of care, while criminal courts

require minimum care. If the minimum care is taken, then the

criminal courts would acquit the accused. It was suggested that

this judicial interpretation should be embodied in the section, e.g.,

by adding the words ‘so as to indicate a want of due regard for

human life’.”

Para 16.22. History of section. “The provision in Macaulay’s Draft

Penal Code was as follows:-

‘304. Whoever causes the death of any person by any act or

any illegal omission, which act or omission was so rash or

negligent as to indicate a want of due regard for human life,

shall be punished with imprisonment of either description

for a term which may extend to two years, or fine, or both.’

This clause was inadvertently or otherwise, left out in the final

draft. The present section 304A was subsequently inserted at the

instance of the then Law Minister, Sir James Stephen, by Act 25 of

1870. It was stated in the Statement of Objects and Reasons:-

‘The Code, as it stands, contains no adequate provision for

the punishment of what English lawyers call manslaughter

by negligence. This was provided for in the draft Code,

section 304, and the present Bill supplies the omission.’.”

Para 16.24. No clarification necessary. “… sections 336 and 337

refer to acts done ‘so rashly or negligently as to endanger human

life or the personal safety of others’. But obviously these or similar

words would not be adequate or appropriate for the purposes of

section 304A. We find it difficult to devise a satisfactory form of

words which, while giving effect to the concept of ‘criminal

negligence’, could be regarded as sufficiently expressive and

simple. Judicial decisions have fully explained the scope and

content of the section and on the whole, it seems best not to make

any change in the wording.”

Para 16.25. Punishment inadequate. “We are, however, of the view

that the present maximum punishment for the offence is

inadequate, and should be increased. This is desirable, in view of

the greater importance which this offence has assumed since the

section was inserted due to the wide use of fast moving

mechanically propelled vehicles and the frequency in the

commission of the offence, accompanied by callousness of the

offender towards the victim; often there are cases tried under this

section which are very near to culpable homicide and deserve a

severe sentence.”

Para 16.26. Opinions received. “… in the views expressed on our

question as to the quantum of punishment under the Code, there

has been a strong demand for increase in the punishment under this

section. The suggestions vary from three years to seven years.

There is also a suggestion to increase the period to seven years if

more than one death has been caused. … .”

Para 16.27. Maximum punishment to be five years. “After taking

into account our proposal to fix the maximum punishment for

culpable homicide not amounting to murder at ten years, we

recommend that the maximum punishment for causing death by

negligence may be half that period, namely, five years.”

Para 16.71. Sections 336 to 338 – Recommendation for increase in

punishment. “The punishment under sections 336 to 338 are not

adequate, and should be increased as follows:-

(i) Section 336: Substitute ‘six months’ for ‘three months’,

and ‘five hundred rupees’ for ‘two hundred and fifty

rupees’.

(ii) Section 337: Substitute ‘one year’ for ‘six months’ and

omit the words ‘which may extend to five hundred

rupees’.

(iii) Section 338: Substitute ‘three years’ for ‘two years’ and

omit the words ‘which may extend to one thousand

rupees’.”

4.2 Clauses 116, 117, 123, 138, 139 and 140 of the IPC (Amendment)

Bill, 1972, as introduced in the Council of States on 11.12.1972,

contained the above suggestions of the Law Commission of India.

4.3 Clauses 118, 119, 127, 141, 142 and 143 of the IPC (Amendment)

Bill, 1978, as passed by the Council of States on 23.11.1978,

correspondingly carried the above changes; there was slight difference in

the text of new section 279A in that it not only sought to punish the one

driving a vehicle himself but also the one who permitted another person

to drive. In addition, clause 128 of the Bill inserted new section 304B

(relating to ‘hit and run’ cases) after section 304A in the IPC, which read

as under:

“Causing death or injury by rash or negligent driving. ‘304B.

Whoever by rash or negligent driving of any vehicle causes the

death of any person or causes any injury which is likely to cause

the death of such person, the causing of such death not amounting

to culpable homicide, and drives or runs away without informing

any police station within a reasonable time, shall be punished with

imprisonment of either description for a term which may extend to

seven years, and shall also be liable to fine.

Explanation 1.- Where the act constituting the offence under

section 304A or this section is committed while under the

influence of drink or drug shall be deemed to have been committed

in a rash or negligent manner.

Explanation 2.- In this section “vehicle” includes “vessel”.’

4.4 As the House of the People was dissolved in 1979, the Bill, though

passed by the Council of States, lapsed.

4.5 The 156th Report of the Law Commission of India, submitted in

August, 1997, examined the IPC (Amendment) Bill, 1978, and affirmed

the above amendments, except that new section 304B was recommended

to be inserted as sub-section (2) in section 304A because the number

could not be ‘304B’ in view of the amendment of the IPC by Act 43 of

1986 inserting section 304B relating to dowry death.

5. Pending Motor Vehicles (Amendment) Bill, 2007

5.1 The Motor Vehicles (Amendment) Bill, 2007 (Bill) was introduced

in the Council of States on 15.05.2007 with the objective to, inter alia,

enhance penalties, wherever considered necessary, for violation of the

provisions of the MVAct with a view to ensure road safety and

discipline, and provide for civil penalty in addition to the existing

criminal liability.

5.2 Clause 9 of the Bill seeks to insert new sub-section (5) in section

21 of the MVAct, which reads as under:

“(5) Where the authority authorized to check the driving licence of

any driver, is satisfied after breath analyzer test or any other test as

may be prescribed by the State Government that the driver is under

the influence of alcohol, may suspend the driving licence on the

spot for a period not exceeding three months.”

5.3 Clause 26 of the Bill seeks to amend section 110 of the MVAct

with a view to empower the Central Government to also make rules for

design of the bodies for goods carriage and medium or heavy passenger

vehicles and the material to be used for such bodies, cabin design on a

bare chassis, the conditions for the purpose of licensing and regulating

the establishments for fabrication of bus or truck bodies on bare chassis,

the placement of audio-visual or radio or tape recorder type of device in

the transport vehicle, seating arrangement in public service vehicles and

the protection of passengers against the weather and any matter relating

to construction equipment, maintenance of motor vehicles, trailers and

fitness of all categories of motor vehicle; the entry relating to ‘speed

governors’ is proposed to be substituted with ‘specifications of speed

governors’.

5.4 Clause 27 of the Bill seeks to amend section 111 of the MVAct

with a view to empower State Governments to also make rules regarding

installation of speed governors in transport vehicles and fog lights in

motor vehicles.

5.5 Clause 28 of the Bill seeks to amend section 113 of the MVAct

with a view to make the consignor or the common carrier, whosoever has

issued the documents in possession of the person in charge of the motor

vehicle, responsible for the overloading; where the goods carried belong

to more than one consignor, the responsibility for the overloading shall

rest with the common carrier who engaged the motor vehicle; the owner

of the motor vehicle or the driver shall be responsible for the

overloading, where the motor vehicle with overloaded goods is operating

under the charge of such owner or the driver, as the case may be. The

expression “common carrier” is sought to be defined by inserting a new

clause (4A) in section 2 of the MVAct, vide clause 2 of the Bill, as a

person engaged in the business of collecting, storing, forwarding or

distributing goods to be carried by goods carriages under goods receipt

or transporting for hire, of goods from place to place, by motorized

transport on road, for all persons indiscriminately and includes a goods

booking company, contractor, agent, broker and courier agency, but

excluding the Government.

5.6 Clause 37 of the Bill seeks to substitute new section for section

161 of the MVAct and provides, inter alia, the definition of the

expression “hit and run motor accident” in the context of payment of

compensation, out of the Solatium Fund, in respect of death of, or

grievous hurt to, persons resulting from hit and run motor accidents. The

said expression means “an accident arising out of the use of a motor

vehicle or motor vehicles the identity whereof cannot be ascertained

inspite of reasonable efforts”.

5.7 Clause 50 of the Bill seeks to substitute section 177 of the MVAct

relating to general provision for punishment of offences, enhancing the

quantum of fine for the first offence from the present maximum of Rs.

100/- to a fixed Rs. 500/- and for the subsequent offence from the present

maximum of Rs. 300/- to Rs. 1,500/- subject to the minimum of Rs.

1,000/-.

5.8 Clause 51 of the Bill seeks to amend section 180 of the MVAct

providing punishment for allowing unauthorized persons to drive motor

vehicles, to enhance the quantum of fine from the present maximum of

Rs. 1,000/- to Rs. 2,000/- subject to the minimum of Rs. 1,000/-.

5.9 Clause 52 of the Bill seeks to amend section 181 of the MVAct

providing punishment for driving motor vehicles in contravention of

section 3 (necessity for driving licence) or section 4 (age limit in

connection with driving of motor vehicles), to enhance the quantum of

fine from the present maximum of Rs. 500/- to Rs. 2,000/- subject to the

minimum of Rs. 500/-.

5.10 Clause 53 of the Bill seeks to amend section 183 of the MVAct

providing punishment for contravention of the speed limits referred to in

section 112, to enhance the quanta of fines prescribed under sub-section

(1) relating to driving at excessive speed and under sub-section (2)

relating to causing an employee to drive at excessive speed. Under subsection

(1), the quantum of fine for the first offence is proposed to be

enhanced from the present maximum of Rs. 400/- to a fixed Rs. 500/- and

for the subsequent offence from the present maximum of Rs. 1,000/- to

Rs. 5,000/- subject to the minimum of Rs. 2,000/-. Under sub-section (2),

the quantum of fine for the first offence is proposed to be enhanced from

the present maximum of Rs. 300/- to a fixed Rs. 500/- and for the

subsequent offence from the present maximum of Rs. 500/- to Rs. 3,000/-

subject to the minimum of Rs. 1,500/-.

5.11 Clause 54 of the Bill seeks to amend section 184 of the MVAct

providing punishment for dangerous driving, to enhance the quantum of

fine for the first offence from the present maximum of Rs. 1,000/- to a

fixed Rs. 1,000/- and for the subsequent offence from the present

maximum of Rs. 2,000/- to Rs. 5,000/- subject to the minimum of Rs.

2,000/-.

5.12 Clause 55 of the Bill seeks to amend section 185 of the MVAct

providing punishment for driving by a drunken person or a person under

the influence of drugs, to enhance the quantum of fine for the first

offence from the present maximum of Rs. 2,000/- to a fixed Rs. 2,000/-

and for the subsequent offence from the present maximum of Rs. 3,000/-

to a fixed Rs. 3,000/-.

5.13 Clause 56 of the Bill seeks to amend section 186 of the MVAct

providing punishment for driving when mentally or physically unfit to

drive, to enhance the quantum of fine for the first offence from the

present maximum of Rs. 200/- to a fixed Rs. 500/- and for the subsequent

offence from the present maximum of Rs. 500/- to a fixed Rs. 1,000/-.

5.14 Clause 58 of the Bill proposes to insert new section 187A in the

MVAct, which reads as under:

Section 187A. Liability of a person while driving a motor vehicle

in certain cases. “(1) Without prejudice to the provisions

contained in the Indian Penal Code, 1860, whoever drives a motor

vehicle in rash or negligent manner and causes injury to a person

or damages any property shall be liable to penalty which may

extend to five thousand rupees.

(2) The penalty realised under sub-section (1) shall be credited

to the Solatium Fund established under section 161A in such

manner as may be prescribed.”

5.15 Clause 59 of the Bill seeks to amend section 192 of the MVAct

providing punishment for using a motor vehicle without registration, to

enhance the quantum of fine for the first offence from the present Rs.

5,000/- subject to the minimum of Rs. 2,000/- to Rs. 10,000/- subject to

the minimum of Rs. 4,000/- and for the subsequent offence from the

present Rs. 10,000/- subject to the minimum of Rs. 5,000/- to Rs.

20,000/- subject to the minimum of Rs. 10,000/-.

5.16 Clause 60 of the Bill seeks to amend section 192A of the MVAct

providing punishment for using a motor vehicle without permit or in

contravention of any of its conditions, to enhance the quantum of fine for

the first offence from the present Rs. 5,000/- subject to the minimum of

Rs. 2,000/- to Rs. 10,000/- subject to the minimum of Rs. 4,000/- and for

the subsequent offence from the present Rs. 10,000/- subject to the

minimum of Rs. 5,000/- to Rs. 20,000/- subject to the minimum of Rs.

10,000/-.

5.17 Clause 61 of the Bill seeks to substitute new section for section

198 of the MVAct providing punishment for unauthorized interference

with a motor vehicle, to enhance the quantum of fine from the present

maximum of Rs. 100/- to Rs. 1,000/- subject to the minimum of Rs. 500/-

for tampering with brake or any other part of the mechanism of a motor

vehicle and to Rs. 2,500/- subject to the minimum of Rs. 1,000/- for

tampering with emission control device fitted by the manufacturer.

5.18 Clause 62 of the Bill seeks to amend section 200 of the MVAct

providing for composition of certain offences, to delete therefrom section

194 providing punishment for driving a motor vehicle exceeding

permissible weight, and to insert therein section 192A providing

punishment for using a motor vehicle without permit or in violation of

any of its conditions.

5.19 Clause 63 of the Bill proposes to insert new section 213A in the

MVAct, which reads as under:

Section 213A. Notification of inspection auditors by State

Governments. “(1) The State Government may, by notification in

the Official Gazette, notify such experts in the field of road

transport as it thinks fit for the purpose of carrying out audit of the

authorized testing stations set up under sub-section (2) of section

56.

(2) The State Government may make rules to regulate the

qualifications, powers and functions of experts notified under subsection

(1).”

5.20 Significantly, the Bill proposes enhancement in the quanta of fines

only and the terms of imprisonment wherever prescribed in the MVAct

are not proposed to be increased. Deterrent effect is sought to be

achieved through increases in the quanta of fines prescribed for various

offences under the MVAct.

5.21 The Department-related Parliamentary Standing Committee on

Transport, Tourism and Culture, to which the Bill was referred for

examination and report on 17.05.2007, submitted to Parliament its 139th

Report on the Bill on 28.04.2008. The following are some of the

important observations/ recommendations of the Committee:

Para 13.2. “Clause 9 seeks … .”

Para 13.3. “The Committee notes that drunken driving is a major

cause of road accidents. This malady needs to be dealt with a firm

hand. The Committee got suggestions from various quarters to the

effect that if a drunken driver commits an accident which results in

the death of persons the former should be dealt under the

provisions of culpable homicide not amounting to murder under

the relevant section of IPC. The Committee, therefore,

recommends that the Government may amend the necessary

legislations to include the deaths due to drunken driving as

culpable homicide not amounting to murder.”

Para 13.4. “The Committee also recommends that if the drunken

driver commits an accident his action should not be construed as

mere ‘negligence’ rather it should be treated as a premeditated

commitment of a crime and the drunken driver should be

punishable under relevant provisions of IPC depending on the

consequences of the accident.”

Para 20.2. “Clause 27 seeks … .”

Para 20.3. “The Committee welcomes this amendment as

installation of speed governors and fog lights are important safety

requirements. The Committee hopes that this Clause once

legislated should be implemented systematically and the violators

of this provision should be punished heavily as over speeding is

one of the main causes for the rising number of accidents on the

roads.”

Para 31.2. “Clause 50 seeks … .”

Para 31.3. “One of the stakeholders has suggested slab rates for

over speeding since the danger increases manifold when the

vehicle is driven at 90Km/ph or at 120 km/hr. Thus slab may be as

follows:

20% more than speed limit Rs.500

50% more than speed limit Rs.1000

100% and beyond cancellation of licence and held under

section 184 of Motor Vehicle Act.”

Para 31.4. “The Committee is also of the view that to restrain

dangerous driving which causes human and financial loss the

above slab may be suitably formulated for every offence

prescribed in the Motor Vehicle Act. The Committee also

recommends that the slab may be revised annually in proportion to

the rate of inflation and the clause may be modified accordingly.”

Para 32.2. “Clause 53 seeks … .”

Para 32.3. “The recommendations of the Committee against

Clause 50 may be applied in this Clause also with necessary

modifications.”

Para 33.2. “Clause 54 seeks … .”

Para 33.3. “The Committee notes that the Motor Vehicles Act,

1988, does not contain any provision or penalty related to the

usage of mobile phones by the drivers while driving. However,

through an executive order the Government prescribes the

penalties for the use of mobile phones while driving. However,

the executive order is silent on the following issues:-

- Should the case be booked under section 184 of the

MVA?

- What does it mean ‘while driving’ – can one be

booked while waiting on a signal?

- Can hands free-phones be used?

- Are two way radio sets allowed by taxi users and

other paramilitary and police organizations?”

Para 33.4. “At present, the offence of usage of mobiles will be

punishable under the category of dangerous driving vide Section

184 Motor Vehicles Act. The Committee feels that the Motor

Vehicles Act being a two decade old legislation could not have

envisaged the usage of mobile phones and the gravity of the

situation which causes large number of accidents. The Committee,

therefore, recommends that a new Section should be entrusted

specifically for the usage of mobile phones while driving.”

Para 34.2. “Clause 55 seeks … The Committee’s recommendations

against Clause 9 may be applied in case of this Clause also with

necessary modifications.”

Para 34.3. “It was submitted to the Committee by the

representative of the Institute of Road Traffic Education that the

breath alcohol tests conducted on drunken drivers proved that they

were having alcohol level of 30 mg to 200mg and above in 100ml

of blood. The more the quantity of alcohol makes the driver more

vulnerable to accidents. The danger increases manifold when he

drives at 90 km/hr or 120 km/hr compared to the low speed

driving. The probability of accidents increase with the increase of

the speed of motor vehicle. Higher the speed would mean higher

the risk of accidents and therefore should attract higher penalty.

The Committee feels that a singular penalty in such cases will not

serve the purpose. The Committee recommends the following

slabs:

(i) 30-60 mg per 100ml of blood- a fine of Rs.2000/-

(ii) 60-150 mg per 100ml of blood- a fine of Rs.4000/-

and/or imprisonment; and

(iii) 150mg and above per 100ml of blood a fine of

Rs.5000/- and minimum imprisonment with a

provision to cancel the driving licence.”

Para 34.4. “The Committee’s recommendations against Clause 9

may be applied in case of this Clause also with necessary

modifications.”

Para 35.2. “Clause 63 proposes … .”

Para 35.4. “One of the stakeholders in their memorandum

submitted the Committee has stated that the maintenance of

vehicles in good condition is a requirement of law. This area is

often overlooked as the pollution levels and the numbers of road

mishaps would suggest. The cut throat competition, the huge

burden of repayment of loans and the inability of the

administration to properly check each vehicle physically at the

time of issuance of certificate of fitness are some of the reasons

that can be attributed to the above. As a result accidents are on the

rise resulting in loss of life and property. Further, the menace of

auto pollution is on the upswing. Proper checks and control are

the need of the hour.”

Para 35.5. “The M.V. Act, 1988 provides scope for appointment of

“Authorized Testing Stations” for proper checking and testing of

all vehicles for the purpose of renewal of certificate of fitness.

They are supposed to install required machinery for this purpose

and also appoint qualified engineers for this purpose. But, the

government has failed to implement the same inspite of the

adequate manpower available at their disposal for the same job.”

Para 35.6. “The Committee notes that almost all the vehicle

manufacturers are having authorized dealerships and authorized

workshops in almost all the cities. The Committee therefore

recommends that the manufacturers themselves can be asked to set

up shops for this purpose after obtaining the required licenses from

the concerned authority. This will be a huge step towards safer

travel and transportation in this country. This will also provide

scope for additional business opportunities and scope for fresh

jobs and employment opportunities. Adequate staff may be

provided for testing the vehicles and the staff may be given

periodical training to test the vehicles. Wherever, the Government

are unable to provide adequate staff, entrusting the work to vehicle

manufacturer may be thought of. Hence, government must move

in this direction immediately. The manufacturers themselves can

be asked to set up shops for this purpose after obtaining the

required licenses from the concerned authority. This will be a

huge step towards safer travel and transportation in this country.

This will also provide scope for additional business opportunities

and scope for fresh jobs and employment opportunities.”

Para 35.7. “The Committee recommends that the Government may

reconsider Clause 63 after carefully scrutinizing the issues

involved and addressing the issues raised by the stakeholders since

this will authorize the State governments to have a panel of experts

in the field of road transport for the purpose of carrying out audit

inspection of authorized testing stations set up under section 56(2)

of the Act.”

Para 41. “Another aspect brought before the Committee by one of

the stakeholders is the insufficiency of the road signage. They

have stated that the road sign has been updated by the Indian Road

Congress in 2001 but the First Schedule to the Motor Vehicles

Act, 1988 has not been amended to incorporate the changes. This

has left a major vacuum in road user education, the driver training

as well as installation of signage as per law. The Committee feels

that if the signages in the schedule are obsolete or not keeping

with the pace of the changing times, naturally there will remain a

serious handicap in driver training and education. The Committee

also notes that there is no mention of road marking or traffic

signals in the first schedule. The Committee feels that this is a

major shortcoming and recommends that the first schedule should

be amended with comprehensive signs and symbols, road markings

and signals as per the recommendations of the Indian Roads

Congress.”

6. Proposed Road Safety and Traffic Management Boards

and National Road Traffic Policy

6.1 The Committee on Infrastructure (COI) headed by Hon’ble Prime

Minister had approved in its third meeting on 13.01.2005, creation of a

Directorate of Road Safety and Traffic Regulation. With a view to

recommend the scope, functions and nature of this Directorate, a

Committee headed by Shri S. Sundar (Sundar Committee) was

constituted by the Department of Road Transport and Highways on

23.11.2005. The Sundar Committee submitted its Report in February,

2007, appending therewith a draft of “National Road Safety and Traffic

Management Act, 2007”. The long title of the proposed enactment reads

as under:

“An Act to provide for the establishment of National and State

level Road safety and Traffic Management Boards for the purpose

of orderly development, regulation, promotion and optimization of

modern and effective road safety and traffic management systems

and practices including improved safety standards in road design,

construction, operation and maintenance, and production and

maintenance of mechanically propelled vehicles and matters

connected therewith or incidental thereto.”

6.2 The following clauses of the proposed enactment need to be

perused:

Clause 2 (g). ‘“Mechanically Propelled Vehicle” or “Vehicle”

means any mechanically propelled vehicle whether motorized or

non-motorized, adapted for use upon roads whether the power of

propulsion is transmitted thereto from an internal or external

source and includes trailers, cycles and cycle rickshaws but

excludes vehicles pulled by animals or humans.’

Clause 2(k). ‘“roads” means all roads including National

Highways, state highways, district roads, village roads and urban

roads which are open as public roads to Mechanically Propelled

Vehicles and includes bridges, flyovers, overbridges and

underbridges, but excludes all private roads and roads that fall in

cantonment areas.’

Clause 2(n). ‘“vehicle other than Mechanically Propelled Vehicle”

means all vehicles not being Mechanically Propelled Vehicles and

includes carts drawn by animals or humans.’

Clause 6. Functions of the National Road Safety and Traffic

Management Board. “(1) The National Board shall, in

relation to road safety and traffic management, have the following

powers and functions, namely:

(a) specify minimum design, construction, operation and

maintenance standards for National Highways;

(b) specify minimum standards for establishing and

operating trauma facilities and para-medical facilities for

dealing with traffic related injuries on National

Highways;

compliance with the standards specified by it;

(d)make recommendations or issue guidelines relating to

design, construction, operation and maintenance

standards for roads other than National Highways.

(2) Notwithstanding anything to the contrary contained in any

law for the time being in force and effect, the National Board shall,

in relation to Mechanically Propelled Vehicles, have the following

powers and functions, namely:

(a) specify the minimum safety requirements and standards

for the design and manufacture of Mechanically

Propelled Vehicles;

(b) specify the minimum conditions for safe usage of

Mechanically Propelled Vehicles including but not

limited to specifying the maximum load bearing and

capacity limits;

compliance with the standards specified by it;

(d) specify safety standards for vehicular traffic on various

types of roads including but not limited to schemes for

segregation of various classes of Vehicles in separate

speed lanes and their right of way;

(e) aid and advise the Central Government in determining

the changes, if any, required to any rules and regulations

for training, testing and licensing of drivers of

Mechanically Propelled Vehicles; and

(f) aid and advise the Central Government in matters

relating to or arising out of traffic management of

Mechanically Propelled Vehicles for the purposes of

ensuring road safety.

(3) Without prejudice to the provisions of sub-sections (1) and

(2) above, the National Board shall have the following additional

powers and functions, namely:

(a) conduct or cause to be conducted research in different

spheres of road safety and traffic management and

publish the findings thereof;

(b) establish the procedure and methodology for data

collection, transmission and analysis at appropriate

levels, and define the role of different agencies within the

jurisdiction of National Board involved in the process;

crash investigation;

(d)make recommendations or issue guidelines relating to

safety features for vehicles other than Mechanically

Propelled Vehicles and for safe operating conditions for

such vehicles;

(e)make recommendations or issue guidelines for building

capacity and skills in the traffic police, hospitals,

highway authorities, educational and research

organizations and other organizations dealing with road

safety and traffic management;

(f) promote best practices in road safety and traffic

management, undertake road safety and traffic education

programs, and conduct campaigns to create awareness

amongst all sections of road users, children and students

on matters relating to road safety;

(g) recognize non-government organizations working in the

area of road safety and traffic management, and assist

them in promotion of efficient traffic management and

road safety;

(h) provide for the special requirements of women, children,

senior citizens, disabled persons and pedestrians when

making regulations or recommendations or when issuing

guidelines relating to road safety and traffic

management;

(i) advise the Central Government on administration of the

provisions relating to safety as contained in Chapters II,

IV, V, VII, VIII and XIII of the Central Motor Vehicles

Act 1988 and the rules made thereunder;

(j) provide technical assistance and guidance to the State

Road Safety and Traffic Management Boards with a view

to promoting uniform road safety and traffic management

systems and practices throughout the country;

(k) enter into agreements with the state governments and/or

State Road Safety and Traffic Management Boards on

behalf of the Central Government for the promotion of

road safety and efficient traffic management; and

(l) liaise with other agencies such as education boards and

institutions, Director-General of health services and non-

governmental organizations in matters relating to road

safety and traffic management.

(4) Nothing contained in sub-sections (1), (2) and (3) of this

section 6 shall be construed or interpreted as conferring on the

National Board powers, functions and jurisdiction in respect of

matters relating to public order, roads other than National

Highways and vehicles other than Mechanically Propelled

Vehicles.

(5) The National Board may be a special or general resolution

delegate to the Chairperson or any other member of the National

Board or to any officer of the National Board, subject to such

conditions and limitations, if any, as may be stipulated, such of its

powers and functions under this Act (except powers under subsection

(3) of this section 6 and section 37 as it may deem

necessary.

(6) The National Board shall exercise its powers and discharge

its functions in a transparent manner.”

Clause 11. Functions of the State Road Safety and Traffic

Management Board. “(1) Subject to the provisions of the

Act, the State Board shall in relation to road safety and traffic

management on roads other than National Highways situate within

the relevant State have the following powers and functions,

namely:

(a) aid and advise the State Government, on matters relating

to or arising out of road safety and traffic management in

the State;

(b) coordinate road safety and traffic management functions

and implementation of measures relating thereto with the

State level agencies and departments involved in road

safety and traffic management for the purposes of this

Act;

maintenance standards for roads other than National

Highways with due regard to the recommendations or

guidelines of the National Board;

(d) specify minimum standards for establishing and

operating trauma facilities and para-medical facilities for

dealing with traffic related injuries on all roads other

than National Highways;

(e) conduct or cause to be conducted safety audits to monitor

compliance with the standards specified under this Act

other than matters relating to National Highways and

matters within the jurisdiction of the Central

Government;

(f) specify minimum safety requirements and standards for

the design and manufacture of vehicles other than

Mechanically Propelled Vehicles with due regard to the

recommendations or guidelines of the National Board;

(g) recommend measures for enquiry into and redressal of

complaints and grievances relating to road safety and

traffic management;

(h)upon request of the National Board, conduct or cause to

be conducted surveys and audits to monitor compliance

with laws relating to road safety and traffic management

and the adherence to standards, procedures and

guidelines specified or issued by the National Board

under this Act, and report the results of such surveys or

audits to the National Board;

(i) identify and promote road user behavior strategies,

capacity building measures, public awareness and road

safety and traffic management education;

(j) promote efficient procedures for accident investigation,

data collection, reporting and analysis, in relation to

matters falling within its jurisdiction; and

(k)promote the provision of special requirements relating to

women, children, senior citizens, disabled persons and

pedestrians in matters relating to road safety and traffic

management on roads other than National Highways.

(2) The State Board may be a special or general resolution

delegate to the Chairperson or any other member of the State

Board or to any officer of the State Board, subject to such

conditions and limitations, if any, as may be specified in the order

such of its powers and functions under this Act as it may deem

necessary.

(3) The State Board shall exercise its powers and discharge its

functions in a transparent manner.

(4) In exercise of its powers and discharge of its functions, the

State Board shall conform to the regulations made by the National

Board under this Act and shall have due regard for the guidelines

issued by the National Board.”

Clause 28. Advisory Committee. “(1) The Appropriate Board shall

by notification establish within ninety days from the appointed

date, a committee to be known as the National Advisory

Committee or the State Advisory Committee, as the case may be.

(2) The National Advisory Committee shall consist of not more

than thirty-one members and the State Advisory Committee shall

consist of not more than twenty-one members to represent the

interests of road users, construction industry, transport industry,

automobile manufacturers, and relevant non-governmental

organizations and academic and research bodies.

(3) The Chairperson and members of the Appropriate Board

shall be the ex-officio Chairperson and ex-officio members of the

National Advisory Committee or the State Advisory Committee, as

the case may be.

(4) The National Advisory Committee or the State Advisory

Committee, as the case may be, shall meet at least four times in a

year and its proceedings shall be conducted in accordance with the

Regulations to be specified.”

Clause 29. Objects of Advisory Committee. “The objects of the

National Advisory Committee or the State Advisory Committee, as

the case may be, shall be to advise the Appropriate Board on-

(a) questions of policy;

(b) matters relating to quality, continuity, reliability and

extent of road safety and traffic management; and

Clause 30. Penalties. “(1) Whoever fails to comply with the

regulations specifying the-

(i) design, construction, operation and maintenance

standards for National Highways; or

(ii) safety standards for the design or manufacture of any

Mechanically Propelled Vehicle,

shall be punishable by the National Board with fine which may

extend to Rupees ten lakh and where the contravention or failure is

a continuing one, with further fine which may extend to Rupees

three lakh for every month or part thereof during which such

failure or contravention continues after lapse of 60 (sixty) days

from the date of imposition of fine for the first such contravention

or failure:

Provided that no such fine shall be imposed on

(i) the operator or owner of whole or any part of any

National Highway for contravention of any such

regulation within a period of three years from the date

on which such regulation came into effect; and

(ii) the manufacturer of a Mechanically Propelled Vehicle

for contravention of any such regulation within a

period of one year from the date on which such

regulation came in effect.

(2) Whoever fails to comply with the regulations specifying the-

(i) standards for design, construction, operation and

maintenance of roads other than National Highways,

(ii) safety standards for the design or manufacture of any

vehicle other than a Mechanically Propelled Vehicle,

shall be punishable by the State Board with fine which may extend

to Rupees ten lakh and where the contravention or failure is a

continuing one, with further fine which may extend to Rupees one

lakh for every month or part thereof during which such failure or

contravention continues after lapse of 60 (sixty) days from the date

of conviction for such contravention or failure:

Provided that no such fine shall be imposed on

(i) the operator or owner of whole or any part of any road

other than National Highways for contravention of

any such regulation within a period of three years

from the date on which such regulation came into

effect; and

(ii) the manufacturer of a vehicle other than a

Mechanically Propelled Vehicle for contravention of

any such regulation within a period of one year from

the date on which such regulation came into effect.

(3) Whoever -

(i) fails to furnish the information required pursuant to

Section 7 or Section 12 or fails to grant or impedes

any access required to any document, record or

information or to any premises where any such

document, record or information is believed to be kept

pursuant to section 7 or Section 12; or

(ii) willfully furnishes or causes to be furnished any

information or return which he knows to be false or

incorrect in material particulars,

shall for each such offence be punishable by the Appropriate

Board with fine which may extend to Rupees one thousand and in

the case of a continuing offence to a further fine which may extend

to Rupees five hundred for each day after the first day during

which the offence continues.

(4) Without prejudice to the penalty that may be imposed under

sub-sections (1) and (2) above, the Appropriate Board may

recommend remedial action to the Appropriate Government.”

Clause 37. Power of National Board to make regulations. “(1)The

National Board may, by notification, make regulations consistent

with this Act and the rules made thereunder to carry out the

provisions of this Act.

(2) Before notifying any regulations, the National Board shall

publish a draft thereof in such manner as it may deem fit to

provide an opportunity to persons affected or likely to be affected

by such regulations to make suggestions or objections and upon

receiving such suggestions and objections within the period

stipulated by the National Board, consider the same before

notifying the regulations, with or without modifications.

(3) In particular, and without prejudice to the generality of the

foregoing power, such regulations may provide for all or any of the

following matters, namely:-

(a) any matter which is required to be, or may be,

specified by regulations or in respect of which

provisions is to be or may be made by regulations for

the purposes of the National Board’s exercise of its

powers under section 6 of the Act;

(b) the time and places of meetings of the National Board

and the procedure (including quorum necessary for

the transaction of business) to be followed at such

meetings under sub-section (1) of section 16;

(1) of section 18;

(d) the terms and conditions of the consultants appointed

under sub-section (4) of section 18;

(e) the procedure to be followed by the National Board

including the places at which it shall conduct its

business under sub-section (1) of section 16; and

(f) any other matter which is required to be, or may be,

specified by regulations or in respect of which

provision is to be or may be made by regulations.”

Clause 43. Power of the Appropriate Government to suspend

application of regulations. “(1) If, at any time, the Appropriate

Government is of the opinion that on account of grave emergency,

national security or other like cause it is necessary to keep in

abeyance any or all regulation(s) made under this Act by the

Appropriate Board, the Appropriate Government, may, by

notification in the Official Gazette, direct suspension of

application of such regulation(s) for such period, not exceeding six

months at a time, as may be specified in the notification.

(2) On the expiration of the period of suspension specified in

the notification issued under sub-section (1), the Appropriate

Government may for reasons to be recorded in writing extend the

period of suspension for such further term, not exceeding six

months at a time, as it may consider necessary.

(3) The Appropriate Government shall cause a notification

issued under sub-section (1) and a full report of any action taken

under this section and the circumstances leading to such action and

the reasons for such action to be laid before each House of

Parliament or the State Legislature, as the case may be, at the

earliest possible opportunity.”

Clause 44. Act to have overriding effect. “The provisions of this

Act shall have effect notwithstanding anything inconsistent

therewith contained in any other law for the time being in force or

in any other instrument having effect by virtue of any other law

other than this Act.”

6.3 While the Union Government is still examining the Report of the

Sundar Committee, the State of Kerala has taken the lead and brought on

its statute Book the Kerala Road Safety Authority Act, 2007 (Kerala

Act). The Kerala Act provides for the constitution of a Road Safety

Authority for implementation of road safety programmes in the State, for

the establishment of a Road safety Fund and for matters connected

therewith and incidental thereto. The Transport Commissioner is ex

officio the Road Safety Commissioner, who is a member and the Chief

Executive Officer of the Authority. The following sections of the Kerala

Act need to be perused:

Section 4. Functions of the Authority. “The Authority shall have

the following functions, namely:-

(a) advising the Government on road safety policies;

(b) prescribing and enforcing road safety standards and

procedures;

programmes, relating to road safety;

(d) co-ordinating the functions of all the agencies and

Government departments discharging the duties

related to road safety;

(e) implementing road safety awareness programmes;

(f) administration of the Fund;

(g) sanctioning expenditure for the implementation of

road safety schemes and programmes;

(h) sanctioning expenditure for road safety projects and

for purchase and installation of equipments and

devices connected with road safety;

(i) sanctioning expenditure for the conduct of studies,

projects and research on matters relating to road

safety;

(j) sanctioning expenditure for trauma-care programmes

or activities;

(k) sanctioning administrative expenditure of the

Authority;

(l) sanctioning expenditure on matters connected with

road safety measures;

(m) formation of self help groups, under the leadership of

the Authority for the rescue operation in the place of

accident;

(n) discharging such other functions, as may be

prescribed, having regard to the objects of this Act.”

Section 14. Power to order removal of causes of accidents. “(1)

Notwithstanding anything contained in any other law for the time

being in force, where the Authority is satisfied on complaint,

report by any person or otherwise that –

(i) the act of any person or persons on a public road; or

(ii) the placement or positioning of any vehicle, animal,

object built without the approval of any recognized

administrative authority, structure or materials

including arches, banners, display boards, hoardings,

awnings, tents, pandals, poles, platforms, rostrums,

statues, monuments and other similar structures, on a

public road; or

(iii) the movement of animals or vehicles on a public road;

(iv) the condition of any tree, structure or building

situated in the vicinity of a public road; or

(v) the entry or exit of any building or premise in the

vicinity of a public road,

is likely to cause accidents or causes obstruction to the free flow of

traffic or distract the attention or obstruct the vision of the driver

of any vehicle, the Road Safety Commissioner may, after

recording reasons thereof, direct the person concerned, either by a

general or special order, to take such measures within two months

as it considers necessary and such person shall be bound to comply

with the direction within such time, as may be specified by the

Authority.

(2) Notwithstanding anything contained in sub-section (1), in

case of urgency, the Road Safety Commissioner may take such

action as may be necessary to prevent accident or obstruction, as

the case may be, and recover the cost thereof from the person

responsible, in such manner as may be prescribed.”

Section 15. Power to order works. “(1) Notwithstanding anything

contained in any other law for the time being in force, it shall be

lawful for the Authority to order any work or improvement on a

public road, as it considers necessary, to secure safety on such

roads and each concerned Government department or the local

authority or any other authority shall be bound to carry out such

works or improvement within such time, as may be specified by

the Authority:

Provided that no order under this sub-section shall be issued

in respect of any highway declared as such under the Kerala

Highway Protection Act, 1999 (6 of 2000) except with the prior

consultation of the highway authority of the respective area

appointed under the said Act:

Provided further that it shall not be issued in respect of the

roads under the control of the Local Self Government Institutions

without prior consultation with the respective Local Self

Government.

(2) It shall be the duty of every officer of the Government, local

authority or any other authority to act in aid of the Authority in

enforcing the orders under sub-section (1).”

Section 16. Power to recover cost. “If any person on whom a

written order is served under section 14 refuses or fails to comply

with the order, the Authority may take such action as to prevent

danger and ensure safety to the public and may recover the cost

with legitimate interest thereof from such person.”

Section 19. District Road Safety Council. “(1) The Government

may, by notification in the Gazette, constitute a Council to be

called “the District Road Safety Council” in every district in the

State.

(2) … .

(3) The District Road Safety Council shall exercise such powers

and perform such functions, as the Authority may, from time to

time, delegate.”

Section 26. Punishment for failure to comply with the Authority’s

order. “(1) Whoever refuses or fails to comply with any order of

the Authority or the Road Safety Commissioner or any District

Road Safety Council under this Act, shall be punishable with

imprisonment for a term of six months or with fine which may

extend to five thousand rupees or with both.

(2) In the case of continuing offence a fine of one thousand

rupees shall be imposed for each day for which the offence

continues.”

Section 27. Punishment for obstructing the Authority. “Whoever

obstructs the Authority, the Road Safety Commissioner, District

Road Safety Council or any officer of the Authority or of the

District Road Safety Council or any person employed or engaged

by them in the discharge of the functions under this Act, shall be

punishable with imprisonment for a term of maximum three years

or with fine which may extend to five thousand rupees or with

both.”

Section 28. Compounding of offences. “Any offence punishable

under section 26 may either before or after the institution of

prosecution, be compounded by such officers or authorities and for

such amount as the Government may, by notification in the

Gazette, specify in this behalf.”

Section 37. Power to give directions. “The Government may give

directions to the Authority in matters of policy of the Authority

and the Authority shall be bound to give effect to such directions.”

6.4 Significantly, section 215 of the MVAct mandates the constitution

of Road Safety Councils at the national and State levels and of District

Road Safety Committee for each district and there are in place the

National Road Safety Council and State Road Safety Councils in some

States. This provision reads as under:

Road Safety Councils and Committees. “(1) The Central

Government may, by notification in the Official Gazette, constitute

for the country a National Road Safety Council consisting of a

Chairman and such other members as that Government considers

necessary and on such terms and conditions as that Government

may determine.

(2) A State Government may, by notification in the Official

Gazette, constitute for the State a State Road Safety Council

consisting of a Chairman and such other members as that

Government considers necessary and on such terms and conditions

as that Government may determine.

(3) A State Government may, by notification in the Official

Gazette, constitute District Road Safety Committee for each

district in the State consisting of a Chairman and such other

members as that Government considers necessary and on such

terms and conditions as that Government may determine.

(4) The Councils and Committees referred to in this section

shall discharge such functions relating to the road safety

programmes as the Central Government or the State

Government, as the case may be, may, having regard to the

objects of the Act, specify.”

6.5 The Union Department of Road Transport and Highways has

formulated a draft National Road Safety Policy (Policy) in consultation

with road safety experts and other departments. The same was placed

before the National Road Safety Council and has also been placed on the

said Department’s website21. The comments/suggestions received thereon

are under examination.22

6.6 The Policy notes that the number of road accidents and fatalities have

been growing in recent years, which call for concerted and multidisciplinary

preventive and remedial efforts. As road accidents

21 http://morth.nic.in, visited 17.06.2008

22 ibid.

involve roads, motor vehicles as also the human beings, the Policy

needs to address on a holistic basis, issues covering road engineering,

signage, vehicle design, education of road users and enforcement of

traffic safety measures. Safer road infrastructure, safer vehicles, safer

drivers, safety for vulnerable road users, road traffic safety education

and training, and traffic enforcement are, accordingly, included in the

goals.

6.7 The Policy states that safety conscious planning and design of

roads and road networks will be encouraged whilst undertaking new as

well as up-gradation and rehabilitation road schemes through application

of road safety audits.

6.8 The Policy notes that without vehicle construction regulations

governing safety standards for systems such as braking, lightening,

signaling there can be little control over the general safety of country’s

vehicle fleet. Steps will be taken to strengthen the system to ensure that

safety aspects are built in at the stage of design, manufacture, usage,

operation and maintenance of vehicles in line with prevailing

international standards in order to minimize adverse safety and

environmental effects of vehicle operation on road users and

infrastructure.

6.9 The Policy states that the government will strengthen the system of

driver licensing and training to improve the competence and capability of

drivers. The manpower, both quantitatively and qualitatively, will be

improved to test and evaluate the driving ability of all licence applicants.

Setting up of modern driving schools with adequate infrastructure and

tools in partnership with automobile manufacturers, other private sector

participants and NGOs will be encouraged.

6.10 The Policy notes that the road users found most vulnerable on

Indian roads from a road safety point of view are pedestrians, bicyclists

and motorized two-wheelers. Special provisions for people on foot

include regulations for pedestrian crossings, which give legal precedence

to pedestrians. However, it is the pedestrians seeking to protect their

lives, who almost invariably give way to motor vehicles. Another set of

vulnerable road users are the non-motorized handcarts, cycle rickshaws,

animal-drawn carts, etc. In India, there is high degree of heterogeneity

and no segregation of motorized and non-motorized traffic on roads. This

often leads to increased conflicts and thus reduced safety. There is no

appropriate legislation to govern the behaviour of pedestrians and

non-motorized traffic on the roads.

6.11 The Policy states that the government will encourage all

professionals undertaking road design, road construction, road network

management, traffic management and law enforcement to attain adequate

knowledge of road safety issues. Inclusion of road safety awareness as

part of educational curricula for students of various age groups will be

encouraged. Also, training programmes for various specific groups

involved in road safety management tasks, e.g., traffic personnel,

highway engineers, school teachers, town planners, NGOs, etc. will be

planned, designed and implemented.

6.12 The Policy notes that enforcement of traffic legislation is aimed at

controlling road user behaviour by preventive, persuasive and punitive

methods in order to effect the safe and efficient movement of people and

goods. The primary objective of traffic law enforcement is the creation of

a deterrent to violators and potential violators of traffic laws and to raise

the level of compliance among all drivers and road users. Appropriate

steps to ensure that the enforcement authorities are adequately manned,

trained, equipped and empowered to carry out their function ensuring

safe road use and orderly traffic flow, will be taken.

7. Pedestrians and Non-motorized Traffic

7.1 We may first refer to the following provisions in the Rules of the

Road Regulations, 1989:

Regulation 11. Right of way. “The pedestrians have the right of

way at uncontrolled pedestrian crossings. When any road is

provided with footpath or cycle track specially for other traffic,

except with permission of a police officer in uniform, a driver shall

not drive on such footpath or track.”

Regulation 19. Stop sign on road surface. “(1) When any line is

painted on or inlaid into the surface of any road at the approach to

the road junction or to a pedestrian crossing or otherwise, no driver

shall drive a motor vehicle so that any part thereof projects beyond

that line at any time when a signal to stop is being given by a

Police Officer or by means of a traffic control light or by the

display of any traffic sign.

(2) A line for the purpose of this regulation shall not be less

than 50 millimetres in width at any part and may be either in white,

black or yellow.”

Regulation 22. Traffic Sign and Traffic Police. “A driver of a

motor vehicle and every other person using the road shall obey:-

(a) every direction given, whether by signal or otherwise, by

a police officer or any authorized person for the time

being in charge of the regulation of traffic;

(b) any direction applicable to him and indicated on or by

notice, traffic sign or signal fixed or operated by an

authority, competent to do so:

fixed at road intersections.” (underlining is

ours)

7.2 There is no central legislation comprehensively

governing/regulating the use of roads by the pedestrians and nonmotorized

traffic. It is left to the States to legislate thereon.

7.3 According to the Delhi Municipal Corporation Act, 1957, all

roads in Delhi vest in the Corporation and it is the duty of the

Commissioner of the Corporation to maintain, control and regulate them,

vide section 298. The definition of “vehicle” includes a carriage, cart,

van, dray, truck, hand-cart, bicycle, tricycle, cycle-rickshaw, autorickshaw,

motor vehicle and every wheeled conveyance which is used or

is capable of being used on a road, vide section 2(62), and the

Commissioner may, inter alia, prohibit vehicular traffic on any road so

as to prevent danger, obstruction or inconvenience to the public or to

ensure quietness in any locality, vide section 303.

7.4 The Delhi Municipal Corporation Cycle-rickshaw Bye-laws, 1960,

dealing with licensing of drivers of cycle-rickshaws for hire, puts

conditions on a person applying for propelling a cycle-rickshaw, vide

bye-law 5. The driver of a cycle-rickshaw should, inter alia, know the

rules of the road and signals used by the drivers of other vehicles or by

the traffic police and drive with all care and attention and observe all the

rules of the road; he should not disobey any direction of any police

officer for the regulation of traffic; he should keep the lamp properly

lighted during the hours of lighting time; he should not propel a cycle-

rickshaw while intoxicated or make use of insulting, abusive or obscene

language. Bye-law 17 prescribes penalty for contravention of the said

provision in terms of paltry fine, i.e., fine which may extend to Rs. 50/-

and in the case of a continuing contravention, an additional fine which

may extend to Rs. 5/- for every day during which such contravention

continues after conviction for the first such contravention.

7.5 The State of Karnataka has on its statute book the Karnataka

Traffic Control Act, 1960 (KTCA), enacted for the control of traffic on

highways and public places in the said State. The KTCA regulates the

use of roads by vehicles, other than motor vehicles, and animals. The

following sections of the KTCA need to be perused:

Section 2. Definitions. “In this Act, unless the context otherwise

requires, -

(a) ‘animal’ means any elephant, camel, horse, ass, mule,

cattle, sheep or goat;

(b) ‘driver’ means in the case of a vehicle, the person in

charge or control of the vehicle for the time being,

and in the case of an animal, any person driving,

leading, riding or otherwise managing or controlling

the animal, and the words “drive”, “driving” and

“driven” shall be construed accordingly;

…

(h) ‘public place’ means a road, street, way or other

place, whether a thoroughfare or not, to which the

public have a right of access or over which they have

a right to pass, and includes any place or stand at

which passengers are picked up or set down by a

public vehicle;

(i) ‘public vehicle’ means any vehicle used or

constructed or adapted to be used for the carriage of

passengers or goods for hire or reward, other than a

motor vehicle;

…

(k) ‘vehicle’ includes any wheeled conveyance drawn,

propelled or driven by any kind of power including

human, animal, motor, steam or electric power and

includes any barrow, sledge, plough, drag or like

vehicle, but does not include a motor vehicle.”

Section 3. Power to restrict the use of vehicles. “The State

Government or any authority authorized in this behalf by the State

Government, if it is satisfied that it is necessary in the interest of

public safety or convenience, or because of the nature of any road

or bridge, may, by notification, prohibit or restrict subject to such

exceptions and conditions as may be specified in the notification,

the driving of vehicles or animals either generally in a specified

area or on a specified highway or part of a highway, and when

such prohibition or restriction is imposed shall cause appropriate

traffic signs to be placed or erected under section 4 at suitable

places:

Provided that where any prohibition or restriction under this

section is to remain in force only for a period of one month or less,

notification thereof in the Official Gazette shall not be necessary.”

Section 4. Traffic signs. “(1) The State Government or any

authority authorized in this behalf by the State Government may

cause or permit traffic signs of any size, colour, type or

description, to be placed or erected in any highway or public place

for the purpose of bringing to public notice any prohibitions or

restrictions imposed under section 3, or generally for the purpose

of regulating traffic other than motor vehicle traffic.

…

(4) Any authority authorized in this behalf by notification by the

State Government may remove or cause to be removed any sign or

advertisement which is so placed in his opinion as to obscure any

traffic sign from view or any sign or advertisement which is in his

opinion so similar in appearance to a traffic sign as to be

misleading.

(5) No person shall wilfully remove, alter, deface, or in any way

tamper with any traffic sign placed or erected under this section.

(6) If any person accidentally causes such damage to a traffic

sign as renders it useless for the purpose for which it is placed and

erected under this section, he shall report the circumstances of the

occurrence at the nearest police station, as soon as possible, and in

any case within twenty-four hours of the occurrence.”

Section 6. Duty to obey traffic signs. “(1) Every driver of a vehicle

or animal shall drive it in conformity with any indication given by

a mandatory traffic sign and in conformity with the driving

regulations set forth in the Second Schedule and shall comply with

all directions given to him by any police officer for the time being

engaged in the regulation of traffic in any public place.

(2) In this section, ‘mandatory traffic sign’ means a traffic sign

included in Part A of the First Schedule or any traffic sign of

similar form (that is to say consisting of or including a circular

disc) displaying a device, word or figure and having a red ground

or border or any prescribed sign painted or marked on the road or

erected or displayed for the purpose of regulating traffic other than

motor vehicle traffic under sub-section (1) of section 4.”

Section 7. Signals. “The driver of a vehicle shall on the occasions

specified in the Third Schedule make the signals specified

therein.”

Section 8. Leaving vehicle or animal in dangerous position. “No

person in charge of a vehicle or animal shall cause or allow the

vehicle or animal to remain at rest on any highway in such a

position or in such a condition or in such circumstances as to cause

or is likely to cause danger, obstruction or undue inconvenience to

other users of the highway or public place.”

Section 9. Towing of person riding cycle. “No driver of a vehicle

shall tow a person riding a cycle and no person riding a cycle shall

allow himself to be towed by any other vehicle.”

Section 10. Leaving vehicle or animal unattended. “No person in

charge of a vehicle or animal shall allow such vehicle or animal to

stand or proceed on a highway or public place unless it is under

adequate control.”

Section 11. Duty of driver to stop in certain cases. “(1) The driver

of a vehicle or animal shall cause the vehicle or animal, as the case

may be, to stop and to remain stationary so long as may be

reasonably necessary,-

(a) when required to do so by any police officer in uniform,

(b)when the vehicle or animal is involved in the occurrence

of an accident to a person, animal or vehicle or of

damage to any property, whether the driving or

management of the vehicle or animal was or was not the

cause of the accident or damage, and he shall give his

name and address and the name and address of the owner

of the vehicle or animal to any person affected by such

accident or damage who demands it, provided such

person also furnishes his name and address.

(2) The driver of a vehicle or animal shall, on demand by a

person giving his own name and address and alleging that the

driver has committed an offence punishable under section 19, give

his name and address to that person.”

Section 12. Duty of owner of vehicle or animal to give

information. “The owner of a vehicle or animal the driver of which

is accused of any offence under this Act shall on demand by any

police officer give all information regarding the name and address

of the driver which is in his possession or could by reasonable

diligence be ascertained by him.”

Section 13. Duty of driver in case of accident and injury to person.

“When any person is injured, or damage to property to the amount

of twenty-five rupees or more is caused as the result of an accident

in which a vehicle is involved, the driver of the vehicle or other

person in charge of the vehicle shall-

(a) take all reasonable steps to secure medical attention

for any person so injured and, if necessary, convey

him to the nearest hospital, unless the injured person,

or his guardian, in case he is a minor, desires

otherwise;

(b) give on demand by a police officer any information

required by him or, if no police officer or other

authority is present, report the circumstances of the

occurrence as soon as possible, and in any case within

twenty-four hours of the occurrence, at the nearest

police station, or, if he continues his journey after the

accident, at the next police station.”

Section 14. Power to make rules for control of traffic. “(1) The

State Government may, after previous publication, by notification,

make rules for the purpose of carrying into effect the provisions of

this Chapter, and different rules may be made for different areas of

the State.

(2) Without prejudice to the generality of the foregoing power,

such rules may provide for-

(a) the removal and the safe custody of the vehicles

including their loads which have broken down or

which have been left standing or have been

abandoned on a highway;

(b) the use of weighing devices;

parking places for the use of vehicles and animals and

the fees, if any, which may be charged for their use;

(d) prohibiting the use of foot-paths or pavements by

vehicles or animals;

(e) subject to specified conditions the segregation to any

specified part of a highway of specified classes and

descriptions of vehicle or animal traffic;

(f) prohibiting or restricting the use of audible signals at

certain times or in certain places;

(g) regulating the loading of vehicles and in particular

limiting the loads carried in relation to the size and

nature of the tyres fitted;

(h) a right of way for ambulances and fire brigade

vehicles;

(i) prohibiting the use of devices designed to prevent the

rotation of any wheel of a vehicle;

(j) the control of animals likely to frighten other animals

or pedestrians;

(k) the control of children on highways;

(l) prohibiting the riding by more than two persons at the

same time on cycles other than cycles designed for the

purpose;

(m) prohibiting the riding of more than two cycles abreast;

(n) limiting the age of drivers of vehicles;

(o) the inspection of loads carried on vehicles and

animals;

(p) the use of nose-ropes for animals;

(q) regulating the driving of vehicles and animals at

night;

(r) regulating the use of highways by pedestrians;

(s) generally, the prevention of danger, injury or

annoyance to the public or any person, or of danger or

injury to property or of obstruction to traffic;

(t) any other matter which is to be or may be prescribed.

(3) The rules made under this section shall take effect on such

date as may be specified in such rules and such date shall not be

earlier than one month from the date of the publication of such

rules in the official Gazette.”

Section 15. General provision regarding construction and

maintenance. “Every vehicle used on a highway shall be so

constructed and maintained as to prevent danger or inconvenience

to persons using that vehicle and other road users.”

Section 16. Power to make rules for construction, equipment and

maintenance of vehicles. “(1) The State Government may, after

previous publication, by notification, make rules regulating the

construction, equipment and maintenance of vehicles used on

highways and public places, and different rules may be made for

different areas of the State.

(2) Without prejudice to the generality of the foregoing power,

rules may be made under this section governing any of the

following matters either generally or in respect of public vehicles

of a particular class or description or in particular circumstances,

namely:-

(a) the width, height and length of vehicles;

(b) the size, nature and condition of wheels and tyres;

(d) lamps and reflectors;

(e) warning devices;

(f) the inspection of vehicles by prescribed authorities;

(g) regulating the particulars exhibited on vehicles and

the manner in which such particulars shall be

exhibited.”

Section 17. Power to make rules for control of public vehicles.

“(1) The State Government may, after previous publication, by

notification, make rules for regulation of the use of public

vehicles, and different rules may be made for different areas of the

State.

(2) Without prejudice to the generality of the foregoing power,

rules may be made under this section governing any of the

following matters either generally or in respect of public vehicles

of a particular class or description or in particular circumstances,

namely:-

(a) the issue, renewal, modification or cancellation of

permits and the transfer of permits from one person to

another;

(b) the issue, renewal or cancellation of driving licences;

driving licences mutilated, defaced, lost or destroyed;

(d) …

(e) the documents, plates and marks to be carried by

public vehicles, the manner in which they are to be

carried and the language in which such documents are

to be expressed;

(f) the badges and uniforms to be worn by drivers;

(g) the fees to be paid in respect of permits, driving

licences, duplicate copies of permits or driving

licences, plates, badges, and appeals preferred under

this Chapter;

(h) the production of permits and driving licences before

specified officers for purposes of inspection;

(i) the conduct of persons licensed to act as drivers of

public vehicles when acting as such and the conduct

of passengers in such vehicles;

(j) the limiting of the number of public vehicles or public

vehicles of any specified class or description for

which permits may be granted in any specified area,

or on any specified route or routes;

(k) the fixing of maximum or minimum fares or freights;

(l) the maximum number of passengers or the maximum

quantity of goods that may be carried in a public

vehicle;

(m) the conditions subject to which passengers, luggage

or goods may be carried in a public vehicle;

(n) the construction and fittings of and the equipment to

be carried by public vehicles, whether generally or in

specified areas or on specified routes;

(o) the safe custody and disposal of property left in public

vehicles;

(p) the conveyance in public vehicles of corpses or

persons suffering from infectious or contagious

diseases or goods likely to cause discomfort or injury

to passengers and the inspection and disinfection of

such vehicles, if used for such purposes;

(q) the requirements which shall be complied with in the

construction or use of any stand or halting place,

including the provision of adequate equipment and

facilities for the convenience of all users thereof, the

fees, if any, which may be charged for the use of such

facilities, the records which shall be maintained at

such stands or places, the staff to be employed thereat

and the duties and conduct of such staff, and generally

for maintaining such stands and places in a

serviceable and clean condition;

(r) requiring the person in charge of a public vehicle to

carry any person tendering the legal or customary

fare;

(s) the inspection of public vehicles including animals

used to drive them;

(t) the records to be maintained and the returns to be

furnished by the owners of public vehicles;

(u) the appointment, terms of appointment, jurisdiction,

control and functions of authorities for the purpose of

administering the provisions of this Chapter; and

(v) any other matter which is to be or may be prescribed.

(3) The rules made under this section shall take effect on such

date as may be specified in such rules and such date shall not be

earlier than one month from the date of the publication of such

rules in the Official Gazette.”

Section 18. General provision regarding punishment of offences.

“Whoever contravenes any provision of this Act or of any rule

made thereunder shall, if no other penalty is provided for the

offence, on conviction, be punishable with fine which may extend

to ten rupees, or if having been previously convicted of any

offence under this Act, he is again convicted of an offence under

this Act, with fine which may extend to fifty rupees.”

Section 19. Driving recklessly or dangerously. “Whoever drives a

vehicle or animal on a highway at a speed or in a manner which is

dangerous to the public, having regard to all the circumstances of

the case including the nature, condition and use of the highway or

public place where the vehicle or animal is driven and the amount

of traffic which actually is at the time or which might reasonably

be expected to be in the highway shall be punishable on a first

conviction for the offence with fine which may extend to one

hundred rupees and for a subsequent offence with fine which may

extend to two hundred rupees.”

Section 20. Power to arrest without warrant. “(1) A police officer

in uniform may arrest without warrant,-

(a) any person who being required under the provisions of

this Act to give his name and address refuses to do so, or

gives a name and address which the police officer has

reason to believe to be false, or

(b) any person concerned in an offence under this Act or

reasonably suspected to have been so concerned, if the

police officer has reason to believe that he will abscond

or otherwise avoid the service of summons.

(2) A police officer or other authority arresting without warrant

the driver of a vehicle or animal shall, if the circumstances so

require, take or cause to be taken any steps he may consider proper

for the temporary custody of the vehicle or animal.”

Section 21. Summary disposal of cases. “(1) A court taking

cognizance of an offence under this Act may state upon the

summons to be served on the accused person that he-

(a) may appear by a legal practitioner and not in person,

(b) may by a specified date prior to the hearing of the

charge plead guilty to the charge by registered letter

and remit to the court such sum as the court may

specify.

(2) Where an accused person pleads guilty under clause (b) of

sub-section (1) and remits the sum specified, no further

proceedings in respect of the offence shall be taken against him.”

SECOND SCHEDULE. DRIVING REGULATIONS.

“1. The driver of a vehicle or animal shall drive the vehicle or

animal, as the case may be, as close to the left-hand side of the

road as may be expedient and shall allow all traffic which is

proceeding in the opposite direction to pass him on his right hand

side.

2. Except as provided in regulation 3, the driver of a vehicle or

animal when passing shall drive to the right of all traffic

proceeding in the same direction as himself.

3. The driver of a vehicle or animal when passing may drive to

the left of a motor vehicle or a vehicle or an animal the driver of

which having indicated an intention to turn to the right has driven

to the centre of the road.

4. The driver of a vehicle or animal shall not pass a vehicle

travelling in the same direction as himself,-

(a) if his passing is likely to cause inconvenience or

danger to other traffic proceeding in any direction;

(b) where a point or corner or a hill or an obstruction of

any kind renders the road ahead not clearly visible.

5. The driver of a vehicle or animal shall not, when being

overtaken or being passed by any class of traffic, do anything in

any way to prevent the other traffic from passing him.

6. The driver of a vehicle or animal shall drive slowly when

approaching a road intersection, a road junction or a road corner

and shall not drive into or cross any such intersection or junction

until he has become aware that he may do so without endangering

the safety of persons thereon.

7. The driver of a vehicle or animal shall on entering a road

intersection, if the road entering is a main road designated as such,

give way to traffic proceeding along that road and in any other

case give way to all traffic approaching the intersection on right

hand.

8. The driver of a vehicle or animal shall, -

(a) when turning to the left, drive as close as may be to

the left hand side of the road from which he is making

the turn and of the road which he is entering;

(b) when turning to the right, draw as near as may be to

the centre of the road along which he is travelling and

cause the vehicle or animal to move in such a manner

that-

(i) so far as may be practicable it passes beyond,

and so to leave on the driver’s right hand a

point formed by the intersection of the centre

lines of the intersection roads; and

(ii) it arrives as near as may be at the left hand side

of the road which the driver is entering.”

THIRD SCHEDULE. SIGNALS.

“1. When about to turn to the right or to drive to the right hand

side of the road in order to pass another vehicle or for any other

purpose, the driver of a vehicle shall extend his right arm or a whip

if carried, in a horizontal position to his right outside the vehicle or

otherwise so as to be visible from behind.

2. When the driver of a vehicle wishes to indicate to the driver

of a motor vehicle or a vehicle behind him that he desires that

driver to overtake him, he shall extend his right arm, or a whip if

carried, horizontally to his right outside the vehicle or otherwise so

as to be visible from behind and shall swing the arm or a whip, as

the case may be backwards and forwards in a semi-circular

motion.”

8. Recommendations

8.1 Clauses 118, 119, 127, 128, 141, 142 and 143 of the IPC

(Amendment) Bill, 1978, as passed by the Council of States on

23.11.1978, are reproduced below:

Clause 118. Amendment of section 279. ‘In section 279 of the

Penal Code, for the words “which may extend to one thousand

rupees” shall be omitted.’

Clause 119. Insertion of new section 279A. “After section 279 of

the Penal Code, the following section shall be inserted, namely:-

‘279A. Driving unsafe or overloaded vehicle on a public

way. Whoever knowingly or negligently drives or permits

any person to drive any vehicle on a public way when that

vehicle is in such a state or so loaded as to endanger life,

shall be punished with imprisonment of either description

for a term which may extend to six months, or with fine, or

with both.

Explanation.- In this section –

(a) “vehicle” includes any vessel; and

(b) “public way” includes any public water-way.’.”

Clause 127. Amendment of section 304A. ‘In section 304A of the

Penal Code, for the words “two years”, the words “five years”

shall be substituted.’

Clause 128. Insertion of new section 304B. “After section 304A of

the Penal Code, the following section shall be inserted, namely:-

‘304B. Causing death or injury by rash and negligent

driving. Whoever by rash or negligent driving of any vehicle

causes the death of any person or causes any injury which is

likely to cause the death of such person, the causing of such

death not amounting to culpable homicide, and drives or

runs away without informing any police station within a

reasonable time, shall be punished with imprisonment of

either description for a term which may extend to seven

years, and shall also be liable to fine.

Explanation 1.- Where the act constituting the offence under

section 304A or this section is committed while under the

influence of drink or drug shall be deemed to have been

committed in a rash or negligent manner.

Explanation 2.- In this section, “vehicle” includes vessel.’.”

Clause 141. Amendment of section 336. ‘In section 336 of the

Penal Code,-

(a) for the words “three months”, the words “six months”

shall be substituted;

(b) for the words “two hundred and fifty rupees”, the words

“five hundred rupees” shall be substituted.’

Clause 142. Amendment of section 337. ‘In section 337 of the

Penal Code,-

(a) for the words “six months”, the words “one year” shall

be substituted;

(b) the words “which may extend to five hundred rupees”

shall be omitted.’

Clause 143. Amendment of section 338. ‘In section 338 of the

Penal Code,-

(a) for the words “two years”, the words ‘three years” shall

be substituted;

(b) the words “which may extend to one thousand rupees”

shall be omitted.’

8.2 The Law Commission of India in its 156th Report, submitted in

1997, affirmed the above changes in the IPC, except that new section

304B was recommended to be inserted as sub-section (2) in section 304A

because the number could not be ‘304B’ in view of the amendment of the

IPC by Act 43 of 1986 inserting section 304B relating to dowry death.

8.3 We reaffirm the changes in the IPC as carried out by clauses 118,

119, 127, 128, 141, 142 and 143 of the IPC (Amendment) Bill, 1978, as

passed by the Council of States on 23.11.1978, subject to the

modifications suggested in the subsequent paragraphs.

8.4 The Law Commission of India now feels that even the maximum

term of imprisonment of five years in section 304A, IPC would not be

adequate on the touchstone of the theory of deterrence keeping in view

the present days’ practical reality and the same should be increased to ten

years (also for the proposed sub-section (2) thereof). It is also felt that the

offence under section 304A, IPC should be non-bailable.

8.5 Causing death of any person through driving under the influence

of drink or drugs should be punishable with the minimum term of

imprisonment of two years.

8.6 Any second or subsequent offence under section 304A, IPC, if the

rash or negligent act involved is the act of driving other than driving

under the influence of drink or drugs, should be punishable with the

minimum term of imprisonment of one year.

8.7 The maximum term of imprisonment in section 279/ (proposed)

section 279A, IPC should be increased to five years and any second or

subsequent offence thereunder should be punishable with the minimum

term of imprisonment of six months.

8.8 Any second or subsequent offence under section 336, IPC, if

committed within three years of the commission of the previous similar

offence and the rash or negligent act involved is the act of driving,

should be punishable with the maximum term of imprisonment of two

years.

8.9 Any second or subsequent offence under section 337, IPC, if

committed within three years of the commission of the previous similar

offence and the rash or negligent act involved is the act of driving,

should be punishable with the maximum term of imprisonment of three

years.

8.10 Any second or subsequent offence under section 338, IPC, if the

rash or negligent act involved is the act of driving, should be punishable

with the maximum term of imprisonment of five years.

8.11 The maximum term of imprisonment in section 184, MVAct

should be increased to five years and that any second or subsequent

offence thereunder should be punishable with the minimum term of

imprisonment of six months.

8.12 Roads are used not only by the motorized transport, but also by the

non-motorized transport as well as pedestrians. There is no

comprehensive Central legislation to effectively and holistically regulate

all kinds of traffic on the roads. The Motor Vehicles Act, 1988 is

relatable to Entry 35 of the Concurrent List and the National Highways

Act, 1956 is relatable to Entry 23 of the Union List. The subject-matter

of roads, traffic thereon, and vehicles other than mechanically propelled

vehicles falls under Entry 13 of the State List, and, therefore, outside the

purview of Parliament. The Seventh Schedule of the Constitution will be

required to be amended for such a comprehensive Central legislation.

The Law Commission feels that there is a need of a comprehensive

Central road traffic law.

8.13 There should be legal provisions in the MVAct for confiscation of

the vehicles fitted with LPG Cylinders (meant for home kitchen), and

arrest and prosecution of owners/drivers of such vehicles.

8.14 As an important part of the enforcement measures, there should be

compulsorily installed weighbridges at all points of entry and exit to and

from a city as well as toll collection centres to keep in check overloaded

vehicles.

8.15 As an important part of the enforcement measures, there should be

compulsorily installed CCTV Cameras at all vulnerable points, to be

determined by an expert committee, to curb traffic violations.

8.16 As an important part of the enforcement measures, there should be

a vigorous campaign on the electronic media, including Doordarshan, All

India Radio and private TV channels, through regular programmes and

debates so as to create awareness amongst the general public about the

imperative necessity to strictly follow traffic rules and regulations as well

as highlight the impact and consequences of rash and negligent driving.

8.17 As an important part of the enforcement measures, there should be

established, through public-private-partnership, recognized driving

training schools in different parts of the country, equipped with

simulators, and obliged to follow properly-devised driving training

modules and impart training at a nominal fee.

8.18 As an important part of the enforcement measure, rule 118 of the

Motor Vehicles Rules 1989 making it mandatory for the notified

transport vehicles to be fitted with an irremovable or tamperproof speed

governor to be sealed with an official seal of the Transport Authority,

should be enforced more vigorously.

8.19 There should be no exemption of government vehicles from policy

of insurance against third party risk and section 146, MV Act should be

amended for the purpose.

8.20 Measures to prevent road accidents may be preventive,

precautionary and punitive. There is no denying the fact that there is a

need of improved road-watch, surveillance and detection, effective and

holistic regulation of all kinds of traffic on the roads and proper

deterrence. For proper road safety and traffic management, focus should

not only be on drivers and vehicles, but also on behaviour of all kinds of

road-users, road infrastructure development and environmental concerns.

In causing road accidents, the cruellest culprit is satanic speed.

8.21 We recommend accordingly.

(Dr Justice AR. Lakshmanan)

Chairman

(Prof. Dr Tahir Mahmood) (Dr Brahm A. Agrawal)

Member Member-Secretary

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