A level crossing is an intersection where a railway line crosses a road or path at the same level, as opposed to crossing over a bridge or underground through a tunnel. These are to be found, in less or greater degree, in all railway systems worldwide.
In the case of Indian Railways, there are about 33000 level crossings. About 18000 of these are manned and the remaining 15000 unmanned. These are meant to provide safe passage to road users, but have so far contributed to approximately 40 per cent of train mishaps and to more than 70 per cent of resultant casualties. Statistics reveal that of the total such accidents during 1997-2007, 85 per cent took place at unmanned and 15 per cent at manned level crossings.
In one of its recent reports, a parliamentary committee has disagreed with the railways’ stand that the main factor responsible for the high rate of accidents at level crossings is negligence of road users. One could argue with these observations because the potential for accidents at these points remains high, and although traffic rules and road design standards exist, the movements of road users are not organised or monitored as rigidly as rail movements. Thus, a very high number of collisions at level crossings are caused by the negligence or incompetence of road vehicle drivers who operate in an environment where safety consciousness is practically non-existent. Even in Great Britain where level crossings are considered among the safest in Europe, it has been found impracticable to close level crossings altogether. Instead, they are working on innovative measures, such as introducing new technology, to make the crossings safe.
The high-level Safety Review Committee on Railways (2002), headed by Anil Kakodkar, had recommended elimination of all level crossings (manned and unmanned) within five years. It noted that such a step would “not only eliminate the accidents at level crossings which account for 65 per cent of total deaths due to train accidents but will also improve the line capacity as trains get held up at busy LC gates. It will also save operation and maintenance costs incurred in the gates.”
While presenting its budget for 2010-11, the ministry of railways made a commitment in Parliament for manning all unmanned level crossings by March 2015. To quote: “Today, there are 17,000 unmanned level crossings. We envisage that in coming years not a single level crossing in the country will remain unmanned or unprotected. Even now, there are about 17,000 unmanned level crossings...A special drive in this regard is being launched so that in the coming five years, all the unmanned LCs are manned.”
No such commitment, however, appeared in the Budget for 2014-15, the minister simply stating that “each unmanned level crossing is being examined in detail and depending on the site condition, action will be taken to eliminate it by suitable modality”. This suggests that the railways have decided not to lay down any deadline for eliminating all unmanned level crossings.
Perhaps the railways have, belatedly, realised that it is simply not practicable to close all level crossings irrespective of the degree of risk that each carries. In fact, in the majority of cases the risk associated with individual level crossing use is insufficient to make a clear case for its closure and/or diversion. The cost, time and effort required in providing a specific risk reduction measure, such as a road overbridge or an underpass, should also be commensurate with the safety benefit that will be obtained as a result thereof. The cost of eliminating one level crossing by providing alternative structures is estimated to be around Rs 4 crore. Even the manning of an unmanned crossing would entail considerable expenditure. A recent study reveals if all unmanned level crossings are to be manned, it would require Rs 2450 crore towards capital cost and Rs 700 crore per annum by way of operation and maintenance expenses. Considering the financial health of the railways, the task would appear to be highly ambitious.
There will be exceptions, of course. The Dedicated Freight Corridor, for instance, which caters to high-speed and seamless movement of freight trains, cannot afford to have level crossings on its path, as it will negate the very purpose with which it is being constructed. The railways have, therefore, undertaken steps to eliminate 27 level crossings on the 625km long route beyond Rewari on the first leg of the Western Corridor. The Rajasthan government has agreed to share the cost of the 22 road over/under bridges to be constructed within its territory and the Haryana government will do likewise for the five crossings that will be falling within its jurisdiction.
Till such time that all level crossings get eliminated, there is need to create a higher degree of safety awareness to road users. It is widely accepted that the only really effective way to decrease the number of accidents, short of closing all level crossings, is to educate people, highlighting the risks involved, and the consequences of not following the simple rules of the road.
The initiative taken by the International Union of Railways is noteworthy. With a view to raising awareness of the risks at level crossings, and to change the behaviour of road users and pedestrians, this organisation has been spearheading the International Level Crossing Awareness Day campaign ever since 2009. It has the support of the railway community around the world, the European Commission and a large number of road sector organisations. Flyers are handed out at level crossings, schools, driving schools, etc. Posters are displayed at railway stations and other central places, special messages are broadcast on radio and television and press conferences held. Several countries from outside Europe have also joined this awareness drive.
The railways claim that periodically they, too, have been carrying out publicity drives (on safety at level crossings) through radio, TV and newspapers. This is all well and good, but there is need to transform it into a more aggressive and sustained drive all-year round. It will also be necessary to assess the impact and reach of the campaigns at regular intervals and infuse them with greater dynamism, if need be. In the long term, this might prove to be a better investment—and at lesser cost—for betterment of safety on tracks than spending huge sums on manning of level crossings, which at best can reduce accidents but not eliminate them altogether. Money thus saved can be utilised for building road overbridges and underpasses, to help complete the process of elimination of all level crossings. Is it not what the Indian Railways are finally driving at?
The author is a former MD of Railway Finance Corporation. E-mail: mathur.surendra@gmail.com