Anil Kakodkar Committee on Railway Safety Recommendations

The Anil Kakodkar Committee, officially known as the High-Level Safety Review Committee, was constituted by the Ministry of Railways in September 2011 to undertake a comprehensive review of the safety practices and performance of the Indian Railways. The committee was chaired by Dr Anil Kakodkar, former Chairman of the Atomic Energy Commission, and was tasked with suggesting institutional, technical, and policy measures to improve safety standards. The committee submitted its report in February 2012, presenting 106 recommendations covering all aspects of railway safety, management, and infrastructure.

Background and Context

Indian Railways, one of the largest railway networks in the world, had been facing recurring accidents caused by derailments, collisions, human errors, and outdated technology. Concerns over increasing accidents and safety lapses prompted the formation of the committee. The Kakodkar Committee was asked to assess the existing safety framework, identify systemic deficiencies, and recommend corrective actions to make railway operations safer and more reliable.
The committee noted that the safety margins in Indian Railways had been steadily eroded due to years of underinvestment, inadequate maintenance, and overburdened infrastructure. It observed that the Railway Board performed multiple roles—policy formulation, regulation, and operations—which created conflicts of interest and diluted accountability.

Key Observations

• The existing institutional structure lacked independent oversight and accountability for safety.
• The Research Designs and Standards Organisation (RDSO), responsible for technology and standards, was constrained by bureaucratic delays and insufficient autonomy.
• There was chronic underfunding of safety-related activities, leading to backlog in track renewal, signalling upgrades, and rolling stock replacement.
• The human resource system was outdated, with inadequate training and frequent vacancies in safety-critical posts.
• There was an urgent need to adopt modern signalling, control, and communication technologies to prevent accidents caused by human error.

Major Recommendations

The committee’s recommendations aimed to create a strong, technologically advanced, and accountable safety regime.

1. Institutional and Regulatory Reforms

• Establish an independent Railway Safety Authority (RSA) as a statutory body to oversee and regulate all safety matters, independent of the Railway Board’s operational control.
• Separate the functions of policy formulation, regulation, and operations within the railway administration to avoid conflicts of interest.
• Restructure the RDSO as an autonomous body to enhance research, innovation, and adoption of global standards.
• Create a Railway Research and Development Council (RRDC) to coordinate scientific and technological advancements in safety.

2. Technology and Infrastructure Upgradation

• Implement an Advanced Signalling System, similar to the European Train Control System, over approximately 19,000 kilometres of trunk routes within five years.
• Modernise train protection and warning systems to reduce accidents caused by driver error.
• Replace all old ICF coaches with safer LHB coaches, which offer better crashworthiness and stability.
• Upgrade tracks, bridges, and rolling stock to ensure long-term sustainability and safety.

3. Elimination of Level Crossings

• Eliminate all level crossings—both manned and unmanned—within five years by constructing road overbridges or underpasses.
• The estimated expenditure for this project was projected at approximately ₹50,000 crore.
• This measure was expected to drastically reduce accidents at railway crossings, which accounted for a significant portion of fatalities.

4. Human Resource and Training Measures

• Fill all vacant posts in safety-related categories such as loco pilots, trackmen, and signal staff.
• Strengthen training programmes and introduce structured skill development at different career stages.
• Establish dedicated Safety Management Institutes for training officers and supervisors.
• Improve staff motivation and accountability by linking performance with safety outcomes.

5. Financial Requirements

• The committee estimated that implementing all recommendations would require an outlay of approximately ₹1,00,000 crore over a period of five years.
• Proposed expenditure included:
  • ₹50,000 crore for level crossing elimination,
  • ₹20,000 crore for advanced signalling and communication systems,
  • ₹10,000 crore for conversion to LHB coaches, and
  • ₹20,000 crore for safety-related renewals and maintenance.
• It recommended creation of a non-lapsable Railway Safety Fund to ensure continuous funding of critical safety works.

6. Organisational Empowerment

• Decentralise decision-making and empower local and divisional officers to address safety issues promptly.
• Simplify procedures to ensure quick response to accidents, maintenance needs, and infrastructure failures.
• Introduce modern management information systems for real-time monitoring of safety performance.

Implementation and Follow-up

Of the 106 recommendations, the Ministry of Railways accepted 87 for implementation. Steps were initiated to modernise signalling systems, eliminate unmanned crossings, and improve safety infrastructure. The government has progressively merged smaller safety funds into a consolidated pool to finance priority projects.
The elimination of unmanned level crossings, installation of train protection systems, and adoption of LHB coaches have seen significant progress. However, complete implementation of the committee’s vision remains ongoing due to financial and logistical constraints.

Significance of the Committee

The Kakodkar Committee marked a major turning point in India’s approach to railway safety. Its importance lies in:

• Emphasising independent safety regulation separate from operations.
• Introducing scientific and technological solutions to prevent accidents.
• Stressing the importance of human resource development and training.
• Highlighting the need for sustained financial investment in safety infrastructure.
• Promoting institutional accountability and transparency.

Limitations and Challenges in Implementation

• The creation of an independent Railway Safety Authority has not yet materialised due to administrative complexities.
• Budgetary constraints have delayed complete execution of recommendations, particularly those involving heavy capital investment.
• Coordination among multiple agencies—Railway Board, RDSO, and state governments—remains a challenge.
• While technological adoption has advanced, safety culture and human factors continue to pose risks.