Changes in Traffic Safety Policies andRegulations in Indonesia(1950–2010)

Changes in Traffic Safety Policies and Regulations in 7 Countries (1950-2010)
Copyright(C) 2012 International Association of Traffic and Safety Sciences, All rights reserved.

Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

Nahry, Soehodho, Tjahjono

1. Background
Traffic safety policies and regulations in Indonesia are recognized as inseparable from the regulations
and policies that govern road transport and traffic issues. Following its independence in 1945,
Indonesia produced in 1951 its first supreme law concerning road transport and traffic, enhancing a
law enacted earlier by the Dutch colonial government. Afterwards, further legislation on road transport
and traffic was passed in 1965, 1980, 1992 and 2009, with the aim of providing safety, security,smoothness and orderliness to road transport and traffic. In addition, various government regulations
were established to endorse the implementation of specific provisions of those laws (except the ones
enacted in 1951 and 1965). As the Indonesian government increasing turned its attention to road traffic
safety, it produced other regulations dealing with specific safety issues in order to minimize roadtraffic accidents.
This study examines such regulations in the context of traffic accident data for the period 1950–2010.
The structure of this paper is as follows: Section 2 presents time series data related to road traffic
safety; Section 3 reviews the traffic accident situation; Section 4 discusses organizations involved in
the road traffic safety; Section 5 presents the laws, regulations and programs related to traffic safety,
and Section 6 reviews them; Section 7 provides conclusions.

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Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

2. Data Related to Road Traffic Safety
2.1 National Population

Sources: [1], [7], [8], [9], [10] (Note: Some data are not available.)

Figure 1 National population

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Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

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2.2 Vehicle Ownership

Sources: [1], [7], [8], [10], [11] (Note: Some data are not available.)

Figure 2a Vehicle ownership (4 classes of motorized vehicles)

Sources: [1], [7], [8], [10], [11] (Note: Some data are not available.)

Figure 2b Vehicle ownership (2 classes of motorized vehicles)37Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

2.3 Road Traffic Accidents

Sources: [1], [6], [10] (Note: Some data are not available.)

Figure 3 Road Traffic Accidents

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Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

Nahry, Soehodho, Tjahjono

2.4 Fatalities
2.4.1 Fatalities per 100,000 population

Sources: Compiled using data from [1], [6], [7], [8], [9], [10]. (Note: Some data are not available.)

Figure 4 Number of fatalities per 100,000 population

2.4.2 Fatalities per 10,000 motorized vehicles

Sources: Compiled using data from [1], [6], [7], [8], [10], [11]. (Note: Some data are not available.)

Figure 5 Number of fatalities per 10,000 vehicles

39Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

Nahry, Soehodho, Tjahjono

2.5 Accident Data in 2009
2.5.1 Number of Accidents by Province in 2009

Source: [6]Figure 6 Number of accidents by province (2009)

2.5.2 Number of Motor Vehicles Involved in Traffic Accidents in 2009
The following bar charts show the number of traffic accidents in 2009 by vehicle type and provinces.
Since Indonesia consists of many islands, the province accident data are classified into the following
six groups:(1) Nationwide total (Figure 7a)(2) Sumatra (Figure 7b)(3) Kalimantan (Figure 7c)(4) Sulawesi (Figure 7d)(5) Java (Figure 7e)(6) Other islands (Figure 7f)

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Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

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Source: [6]Figure 7a Number of motor vehicles involved in traffic accidents in 2009 (nationwide total)

Source: [6]Figure 7b Number of motor vehicles involved in traffic accidents in 2009 (Sumatra Island)

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Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

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Source: [6]Source: [6]Figure 7c Number of motor vehicles involved in traffic accidents in 2009 (Kalimantan Island)

Source: [6]Figure 7d Number of motor vehicles involved in traffic accidents in 2009 (Sulawesi Island)42Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

Nahry, Soehodho, Tjahjono

Source: [6]Figure 7e Number of motor vehicles involved in traffic accidents in 2009 (Java Island)

Source: [6]Figure 7f Number of motor vehicles involved in traffic accidents in 2009 (other islands)

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2.5.3 Traffic Accident Casualties in 2009

Source: [6]Figure 8a Traffic accident casualties in 2009 (nationwide total)

Source: [6]Figure 8b Traffic accident casualties in 2009 (Sumatra Island)

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Source: [6]Figure 8c Traffic accident casualties in 2009 (Kalimantan Island)

Source: [6]Figure 8d Traffic accident casualties in 2009 (Sulawesi Island)

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Source: [6]Figure 8e Traffic accident casualties in 2009 (Java Island)

Source: [6]Figure 8f Traffic accident casualties in 2009 (other islands)

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Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

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3. Review of Traffic Accident Situation
3.1 General Review
In general, annual data on population and vehicle ownership in Indonesia have been collected
relatively effectively since 1950 and have been documented by the Central Bureau of Statistics.
However, the same cannot be said for the reporting and documentation of data on traffic accidents,
especially road traffic accidents. The collection and documentation of time series data on road traffic
accidents was started in 1970, but was initially poor in quality, with many accidents going unreported
for various reasons. One of those reasons was that the use of an unaudited reporting process gave
police officers the potential to refrain from reporting accidents to the higher echelon in order to keep
the reported accident rate low in their areas of duty. Moreover, only the numbers of accidents andresulting casualties were recorded, with no documentation of other accident details.
As the Indonesian government became more concerned with traffic safety, the Indonesian National
Police started devoting greater attention to traffic accident prevention, and recognized that theestablishment of a proper database of accident information was the key to reducing the number ofaccidents. An intensive effort to document traffic accidents was launched on 2005. The data collected
showed extreme growth in the annual number of traffic accidents, with the number for 2005 (91,623)
totaling nearly five times that of 2004 (17,732). However, it is clear that this rise was not the result of
an increase in accident incidence, but was rather the effect of intensive reporting by the police.
Consequently, studies on traffic accidents in Indonesia must also consider this important phenomenon.

3.2 Trends in Road Traffic Accidents
3.2.1 Growth Rate
The following analysis on road traffic accidents is initially based on the trends in the variables related
to traffic accidents. Such trends are represented by the average growth rates of some variables that aredeveloped from data presented in sections 2.1 to 2.4. The growth rates are shown in Table 1. The
growth rates of some variables are also represented in bar charts that show the rate fluctuation
throughout the time of observation (Figures 9 to 11).
Due to the problem of poor accident reporting and documentation described in section 3.1 and basedon the patterns of the time series of variables related to traffic accidents, we decided to divide the timeseries data into the following six periods of observation:(1) 1950–1970(2) 1970 –1981(3) 1981–2002(4) 2002–2004(5) 2004–2007

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Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

Nahry, Soehodho, Tjahjono(6) 2007–2010
Analysis is carried out based on the figures in the following table and bar charts, as well as the dataand graphs presented in Section 2.

Table 1 Average growth rate of selected variables
AVERAGE ANNUAL GROWTH RATEPERIOD
1950-1970

1970-1981

1981-2002

2004-2007

2007-2010

Number of automobiles**

15,00090,000220,000

860,000

3,000,000

1,000,000

Number of motorcycles**

19,000240,000

Total number of vehicles**

35,000330,000

600,000

3,000,000

6,000,000

5,000,000

820,000

4,000,000

9,000,000

6,000,000

Number of road traffic accidents
Number of people seriously injured

3,000-1,9802,700

16,089

1,669

-880

1,485

11,987

Number of people slightly injured

2,187-1,331

1,577

13,622

Total number of people injured

3,857-2,212

3,063

25,609Number of fatalities

877

*)

1,221

3,792

Population

2002-2004

3,000,000

Sources: Compiled using data from [1], [6], [7], [8], [9], [10], [11].(* Not defined due to random fluctuation)** Data for 2010 are not available.

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Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

Sources: Compiled using data from [1], [6], [7], [8], [9], [10], [11].

Figure 9 Growth rate of vehicle ownership

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Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

Sources: Compiled using data from [1], [6], [7], [8], [9], [10], [11].

Figure 10 Growth rate of traffic accidents and casualties

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Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

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Sources: Compiled using data from [1], [6], [7], [8], [9], [10], [11].

Figure 11 Growth rate of casualties

3.2.2 Analysis of Traffic Accident Time Series(1) 1950–1970
The only accident-related data available during this period are vehicle ownership and population. The
number of automobiles and the total number of motorcycles increased at the rate of 15,000 units/year
and 19,000 units/year, respectively. There were 45,663 automobiles in 1950, rising to 364,730 in 1970.
The number of motorcycles in 1950 was only 5,546, but this climbed to 440,005 in 1970. The
population grew steadily at an average rate of 3 million people/year, reaching around 117 million in
1970.
(2) 1970-1981
Collection and documentation of time series data on traffic accidents started in 1970. Before 2005, thenumber of traffic accidents peaked in 1981 at 51,385, with the number of fatalities per 100,000
population estimated at about 7.33, and the number of fatalities per 10,000 vehicles at 24.35. The
accidents in 1981 resulted in 11,105 fatalities, 22,529 serious injuries and 35,645 minor injuries. Dueto the problem of underreporting before 2009, it is not appropriate to compare those indicators of51

Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

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safety with the ones of other countries. The underreporting problem will be discussed in detail in
Section 6.
From 1970 to 1981, the number of accidents and the number of fatalities increased at the rate of
3,000/year and 877 people/year, respectively.

Given that both the number of deaths and the

population grew during this period, the increase in the number of fatalities per 100,000 population(health risk) shows that road safety in Indonesia was in poor condition. This implies that the increasein fatalities is more dominant than the increase in population.
Despite the rise in fatalities during this period, one indicator of traffic safety, the fatalities per 10,000
vehicles (traffic risk), tended to decrease. In the same period, the total number of vehicles increased at
the average rate of 330,000/year. The greater growth rate of vehicle ownership compared with that of
fatalities during that period led to the decrease in traffic risk.
(3) 1981–2002
In the years 1981–2002, the number of traffic accidents tended to decrease, reaching the minimum
point of 12,267 in 2002, with the health risk and the traffic risk standing at 4.32 and 3.81, respectively.
During this period, the number of accidents and the number of injuries decreased, falling by 1,980
incidents/year and 2,212 people/year, respectively.
The number of fatalities fluctuated randomly, reaching a minimum of 8,762 in 2002, and a maximumof 12,308 in 1997. The annual average was 10,574, with a standard deviation of 769.
Meanwhile, the growth rate of vehicle ownership accelerated at an average of about 820,000 units/year(248% of the average for 1970-1981). This growth continued to lower the traffic risk indicator.
(4) 2002–2004
In the period 2002-2004, traffic safety tend to worsen, with the number of accidents rising to 17,732 in
2004 (growing at 2,700/year), and the number of fatalities increasing to 11,204 in the same year
(growing at 1,200/year). During this period, however, the number of fatalities per 10,000 vehicles
hovered at about 3.6 to 3.8, mainly due to the significant growth rate of vehicle ownership, which
averaged 860,000 units/year (391% of the rate for 1981-2002). Moreover, motorcycle ownership rose
by 3,000,000 units/year, which was 500% of the rate for 1981-2002. Given these figures, it isreasonable to presume that vehicle ownership was a factor behind the deterioration of traffic safety
during this period, and this point deserves careful investigation.
The other important figures for the years 1995-2004 are the number of fatalities and the number ofpeople seriously injured. During this period, the number of fatalities outweighed the number of serious
injuries in some years, while the contrary was the case in the other years.
(5) 2004–2007
In 2005, the number of accidents abruptly rose from 17,732 in 2004 to 91,623 in 2005 (517% ). As
described in the previous section, the reporting and documentation of road traffic accident was52

Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

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intensively improved in 2005, including enhancements to accident report formats and to the databasesystem. For this reason, this study excludes the accident data for 2004–2007.
During this period, vehicle ownership continued to increase, growing at the rate of 3 million/year for
automobiles, 6 million/year for motorcycles, and 9 million/year for all motorized vehicles. Thesefigures show that this was a period of explosive growth for vehicle ownership, particularly
motorcycles. Again, this may have worsened the traffic accident problem.
(6) 2007-2010
Between 2007 and 2010, the number of traffic accidents kept worsening, increasing at the rate of
16,089/year (596% of the rate for 2002-2004). In 2010, the total number of accidents rose to 109,311
and the number of fatalities increased to 31,234. Fatalities per 100,000 population and fatalities per
10,000 vehicles in 2009 were 8.64 and 2.83, respectively.
Vehicle ownership during 2007-2010 continued to increase, albeit at rates lower than those of thepreceding period (2004-2007). The rates were 1,000,000 units/year, 5,000,000/year and
6,000,000/year, for automobiles, motorcycles and all motorized vehicles, respectively.
The other important figure is the significant growth in the number of minor injuries, which averaged
13,622 people/year (864% of 2002-2004) and was near the growth rate of accidents. Also, the growthrate of serious injuries was quite similar to that for fatalities.

3.2.3 Analysis of Traffic Accidents by Province and Mode in 2009
As shown in Figure 6, traffic accidents in Indonesia in 2009 were dominated by the provinces on Java
Island, namely, East Java (19.45%), Central Java (12.56%), Jakarta Special District (11.54%), WestJava (6.55%) and Yogyakarta Special District (6.79%). Given these figures and the fact that most ofIndonesia’s big cities are located on Java, further investigation should be made to validate the data of
the provinces outside Java, since their data may be skewed by underreporting.
In general, motorcycles were the dominant vehicle involved in traffic accidents in all provinces. As
shown in Figure 7a, the nationwide total of motorcycles involved in traffic accidents in 2009 was
72,815 (69.7% of all motorized vehicles involved in accidents). This percentage was even larger insome provinces, such as 75% on Java Island (East Java Province), 73.3% on Kalimantan island (East
Kalimantan Province) and 78.9% on Sulawesi Island (Central Sulawesi Province).
In contrast, 15,049 passenger cars and 13,385 trucks were involved in traffic accidents in Indonesia in
2009, accounting for 14.4% and 12.8% of the total, respectively. However, in terms of vehicle
ownership, passenger cars and trucks made up 14.7% and 7.3% of the total number of vehicles,
respectively. From those figures, it can be presumed that trucks are relatively more prevalent in traffic
accidents than are passenger cars.
In Central Java and East Java, the accident involvement of trucks exceeded that of passenger cars.
Attention should be given to this fact in investigation of the causes of accidents.

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In term of casualties, slight injuries outweighed serious injuries and fatalities in all provinces except
South Sulawesi (Figure 8d), where minor injuries were on par with fatalities (1,013 and 1,111 people,
respectively). In East Java, the province with the biggest number of accidents, the breakdown ofcasualties 69% for slight injuries, 17.9% for fatalities, and 13.1% for serious injuries.

4. Organizations Involved in Road Traffic Safety
Organizations involved in road traffic safety and their responsibilities are specified in the following
laws and regulations.
(1) Indonesian Government Regulation No. 32 of 2011 on Traffic Engineering and Management,
Traffic Impact Analysis, and Traffic Demand Management
This regulation prescribes the following responsibilities for the heads of organizations involved inroad traffic safety.
a. Minister of Transportation
The Minister of Transportation holds responsibility for transportation-related matters, including:- Road space utilization- Road capacity- Use of roadside land
- Road facilities directly related to road users- Traffic management- Traffic performance- Potential locations of traffic accidents and congestionb. Minister of Public Works
The Minister of Public Works is responsible for road-related problems, such as:- Highway and intersection geometry- Highway structures- Road facilities indirectly related to road users- Potential locations of traffic accidents and congestion- Utilization of parts not utilized by road users
c. Head of Indonesian National Police
The Head of the Indonesian National Police is responsible for:- Traffic operation performance- Traffic safety culture- Traffic management- Areas with potential for

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Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

Nahry, Soehodho, Tjahjono- Security violations- Traffic accidents- Traffic congestion- Traffic violations- Operation of traffic engineering
d. Governors, heads of regency, and city mayors are locally responsible for:- Highway and intersection geometry- Highway structures- Road facilities directly and indirectly related to road users- Potential locations of traffic accidents and congestion- Utilization of parts not utilized by road users- Road space utilization- Road capacity- Use of roadside land
- Traffic management- Traffic performance(2) Indonesian Law No. 22 of 2009 on Road Transport and Traffic
Under this law, the institutions involved in road traffic safety are designated as follows.
a. Ministry of Public Works: Responsible for road-related problems.
b. Ministry of Transportation: Responsible for road transport and traffic facilities.
c. Ministry of Industry: Responsible for the development of industries related to road transport andtraffic facilities.
d. Ministry of Research and Technology: Responsible for the development of technologies related
to road transport and traffic facilities.
e. Indonesian National Police: Responsible for motor vehicle and driver registration/identification,
law enforcement, traffic engineering and management operation, and traffic safety education.
(3) Indonesian Government Regulation No. 37 of 2011 on the Forum of Road Transport and Traffic.
This regulation designates the following institutions as organizations involved in road traffic safety.
a. Ministry of Public Works: Responsible for road-related problems.
b. Ministry of Transportation: Responsible for road transport and traffic facilities.
c. Ministry of Industry: Responsible for the development of industries related to road transport andtraffic facilities.
d. Ministry of Research and Technology: Responsible for the development of technologies related
to road transport and traffic facilities.

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Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

e. Indonesian

National

Police:Responsiblefor

Nahry, Soehodho, Tjahjono

the

motor

vehicleanddriverregistration/identification, law enforcement, traffic engineering and management operation, andtraffic safety education.
(4) National General Plan on Road Transport and Traffic Safety
According to this guideline, the following five institutions are involved in road traffic safety.
a. Ministry of Transportation: Responsible for coordinating the stakeholders involved in roadsafety management.
b. Ministry of Public Works: Responsible for providing safer roads.
c. Ministry of Industry: Responsible for providing safer vehicles, in which every vehicle on theroad is compliant with high safety standards.
d. Indonesian National Police: Responsible for shaping road user behavior to create safer road
users.
e. Ministry of Health: Responsible for providing adequate treatment of traffic accident injuries.

5. Laws, Regulations and Program
5.1 Traffic Safety-related Laws, Regulations and Program
The laws, regulations and a program related to traffic safety are presented in Table 2.

5.2 Description of Laws, Regulations and ProgramThis section describes laws and regulations that explicitly mention road traffic accidents rather thantraffic safety as a general target of road and traffic management. Moreover, one program related totraffic safety is presented since it has become a milestone of traffic accident data collection inIndonesia.
In order to show the continuity of the description about the impacts of these normative issues on traffic
accidents, the impacts of the regulations will be discussed in the next section.

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1993

1998

2009

10

11

1993

6

9

1992

5

1993

1985

4

8

1980

3

1993

1965

2

7

Year
1951

No.
1

57

Indonesian Law No. 22 of 2009

Indonesian Government Regulation No. 44 of 1993
(derived from Indonesian Law No. 14 of 1992 )Indonesian Government Regulation No. 71 of 1998
(derived from Indonesian Law No. 14 of 1992 )Indonesian Government Regulation No. 41 of 1993
(derived from Indonesian Law No. 14 of 1992 )Indonesian Government Regulation No. 42 of 1993
(derived from Indonesian Law No. 14 of 1992 )Indonesian Government Regulation No. 43 of 1993
(derived from Indonesian Law No. 14 of 1992 )Indonesian Government Regulation No. 26 of 1985
(derived from Indonesian Law No. 13 of 1980)
Indonesian Law No. 14 of 1992

Indonesian Law No. 13 of 1980

Indonesian Law No. 3 of 1965

Law / Regulation / Policy
Indonesian Law No. 7 of 1951

Postponement of implementationof regulation concerning theobligations of providing and using
safety belts
Road transport and traffic

Vehicles and drivers

Inspection of motorized vehicles
on the road
Road traffic and infrastructure

Road transport

Road transport and traffic

Ro a d s

Roads

Concerning
Revision and addendum of
Government Legislation No. 86
of 1933 on road traffic
Road transport and traffic

This law enhances Indonesian Law No. 14 of 1992.
There are specific chapters concerning:- Road transport and traffic safety and security (Chapter XI, clauses
200-208)
Traffic accidents (Chapter XIV, clauses 226-241)

As stated in Indonesian Law No. 14 of 1992, drivers and front-seatpassengers must wear safety belts.

This regulation endorses implementation of clauses of Indonesian
Law No. 14 of 1992.
Two clauses of this regulation define traffic accidents and theauthority for traffic accident data reporting and investigation
No specific clauses concerning safety issues.

No specific clauses concerning safety issues.

This law enhances Indonesian Law No. 13 of 1980.
No specific clauses concerning safety issues.
No specific clauses concerning safety issues.

This law enhances Indonesian Law No. 7 of 1951.
No specific clauses concerning safety issues and no regulations
derived from this law.
This law enhances Indonesian Law No. 3 of 1965.
No specific clauses concerning safety issues.
No specific clauses concerning safety issues.

Remarks
No specific clauses concerning safety issues and no regulations
derived from this law.

Table 2 Laws, regulations and program related to traffic safety

Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)
Nahry, Soehodho, Tjahjono

2011

14

Development of a national
general plan concerning:- Development of national
program on road transport andtraffic safety- Provision and maintenance offacilities and instruments forroad transport and traffic safety- Studies on road transport andtraffic safety issues- Management of road transport
and traffic safety
Road safety improvement in somebig cities and intercities on Javaand Sumatra islands

Road Transport and Traffic
Forum

Indonesian Government Regulation No. 37 of 2011(derived from Indonesian Law No. 22 of 2009)

National General Plan on Road Transport and Traffic
Safety 2011–2035(derived from Indonesian Law No. 22, 2009)- Traffic engineering andmanagement- Traffic impact analysis- Traffic demand management

Indonesian Government Regulation No. 32 of 2011(derived from Indonesian Law No. 22 of 2009)

2007
Indonesia Integrated Road Safety Management Systems(IIRMSs)
2011
Sources: [3], [4], [5]

2011

13

15

2011

12

This program deals with long-term strategies and the implementation
framework for road safety, and with the database system for roadtraffic accident and road safety management .

This regulation endorses implementation of clauses of Indonesian
Law No. 22 of 2009 concerning:- Traffic engineering and management , including data inventory andanalysis on the number of traffic violations and accidents- Traffic impact analysis- Traffic demand management
This regulation endorses implementation of a clause in Indonesian
Law No. 22 of 2009 concerning the coordination among thestakeholders of road transport and traffic.
This plan is for implementing one clause of Indonesian Law No. 22
of 2009 , but it has not yet been legalized by government regulation.

Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

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5.2.1 Indonesian Government Regulation No. 43 of 1993
(1) Background
This regulation endorses implementation of Indonesian Law No. 14 of 1992 on road transport
and traffic. It concerns traffic management and engineering, road networks, road facilities,
pedestrians, and traffic accidents.
(2) Objective
Optimize network and traffic movement utilization in order to ensure the security, safety,
orderliness and smoothness of road transport and traffic.
(3) Content and period of policy
This regulation concerns the following road traffic accident issues.
a. Definitions related to traffic accidents
Fatality: Traffic accident victim who dies within 30 days after the crash.
Seriously injured: Traffic accident victim who incurs permanent physical damage or is
hospitalized for more than 30 days after the crash.
Slightly injured: Traffic accident victim other than the preceding two categories.
b. The authority for traffic accident recording and investigation
The Indonesian National Police has the authority to record traffic accident information anddevelop the traffic accident information system. Investigation of fatal accidents is carriedout by the police, the Ministry of Transportation and the Ministry of Public Works.
This regulation went into effect in 1993.
(4) Organizations responsible for executing the policy
The Indonesian National Police, the Ministry of Transportation and the Ministry of Public
Works are responsible for executing the provisions of this regulation that are related to thetraffic accident issues.
(5) Scope of the policy and its sources of funding
This regulation covers the national level and is funded from national and local government
budgets.

5.2.2 Indonesian Law No. 22 of 2009 on Road Transport and Traffic(1) BackgroundIndonesian Law No. 22 of 2009 is an improvement of Indonesian Law No. 14 of 1992
concerning road transport and traffic problems. It is realized that the role and potency of road59

Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

Nahry, Soehodho, Tjahjonotransport as part of the national transportation system must be improved to ensure safety,
security, smoothness and orderliness for the transportation system.
This law is the current supreme regulation concerning transportation issues, and deals withcertain safety issues as well.
(2) Objectives
a. Establish road transport and traffic that provide safety, security, smoothness andorderliness, and are well connected to other modes of transportation.
b. Establish ethics for transportation.
c. Establish the law enforcement and certainty for the community.
(3) Content and period of policy
This regulation concerns the following road transport and traffic safety matters.
a. The Indonesian government is responsible for establishing safety in road transport andtraffic through the national general plan on road transport andtraffic safety, which

includes:- Creating national programs on road transport and traffic safety.
- Providing and maintaining facilities related to road transport and traffic safety.
- Conducting research on road transport and traffic safety issues.
- Implementing road transport and traffic safety management.
b. Supervision of the road transport and traffic safety programs includes:- Auditing by an independent auditor- Inspection by a mandatory (body) for road transport and traffic.
- Observation and monitoring by a mandatory (body) for road transport and trafficc. The mandatory (body) for road transport and traffic is responsible for building roadtransport and traffic safety culture through policies and programs that include:- Traffic safety education for young people- Internalization of and campaigns for traffic safety programs, culture and ethics- Appreciation to the traffic safety-related actions- Establishment of spaces that encourage people to use transportation in an orderly
fashion- Sustainable and consistent law enforcement
This law went into effect in 2009.
(4) Organizations responsible for executing the policy
The organizations responsible for executing the road traffic safety programs under this law are
as follows.

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Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

Nahry, Soehodho, Tjahjonoa. Ministry of Public Works: Responsible for road-related problems.
b. Ministry of Transportation: Responsible for the road transport and traffic facilities.
c. Ministry of Industry: Responsible for the development of industries related to roadtransport and traffic facilities.
d. Ministry of Research and Technology: Responsible for the development of technologies
related to road transport and traffic facilities.
e. Indonesian

National

Police:Responsible

for

motor

vehicleanddriverregistration/identification, law enforcement, traffic engineering and management operation,and traffic safety education.
(5) Scope of the law and its sources of funding
This law covers the national level, and there are some regulations derived from this law toendorse its implementation. It is funded from national and local government budgets.

5.2.3 Indonesian Government Regulation No. 32 of 2011 on Traffic Engineering andManagement, Traffic Impact Analysis, and Traffic Demand Management(1) Background
This regulation endorses implementation of Indonesian Law No. 22 of 2009, particularly withregard to issues related to traffic engineering and management, traffic impact analysis, andtraffic demand management, including traffic safety issues.
(2) Objective
Optimize network and traffic movement utilization in order to ensure the security, safety,
orderliness and smoothness of road transport and traffic.
(3) Content and period of policy
This regulation concerns the following road traffic accident issues.
a. Identification of potential traffic accident locations by the Ministry of Transportation, theMinistry of Public Works, the Indonesian National Police and locally by the governors,
heads of regency and city mayors.
b. Data inventory and analysis of the traffic situation, including data on potential locations oftraffic/security violations, traffic accidents and congestion. This is carried out by theIndonesian National Police.
c. Data inventory and analysis of the number of traffic violations and accidents on certain
links or areas. This is carried out by the Indonesian National Police, and includes:- Data collection, data base development and analysis of existing traffic violations andaccidents on all links.

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Nahry, Soehodho, Tjahjono- Data collection, database development and analysis of the causative factors of existing
traffic violations and accidents on all links.
- Comparative analysis of the number of traffic violations and accidents between thecurrent year and previous years, and among the causative factors of accidents.
- Analysis and evaluation of efforts to reduce and prevent traffic violations and accidents.
This regulation went into effect in 2011.
(4) Organizations responsible for executing the policy
The Indonesian National Police, the Ministry of Transportation, the Ministry of Public Works,
governors, heads of regency, and mayors are responsible for executing the provisions of thisregulation that are related to the traffic accident issues.
(5) Scope of the policy and its sources of funding
This regulation covers the national level and funded from national and local government
budgets.

5.2.4 Indonesian Government Regulation No. 37 of 2011 on the Forum of Road
Transport and Traffic(1) Background
Under Indonesian Law No. 22 of 2009, the institutions involved in road traffic safety are: theMinistry of Public Works, which is responsible for road-related problems; the Ministry ofTransportation, which is responsible for road transport and traffic facilities; the Ministry ofIndustry, which is responsible for the development of industries related to road transport andtraffic facilities; the Ministry of Research and Technology, which is responsible for thedevelopment of technologies related to road transport and traffic facilities; the Indonesian
National Police, which is responsible for motor vehicle and driver registration/identification,
law enforcement, traffic engineering and management operation, and traffic safety education.
In order to coordinate these institutions, it is necessary to create a forum consisting of amandatory (body), policy executors, scholars and community representatives.
(2) Objective
The Forum of Road Transport and Traffic is aimed at coordinating the institutions involved in
the planning and execution of road transport and traffic matters at the local and national levels,
including traffic safety issues.

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Nahry, Soehodho, Tjahjono(3) Content and period of policy
This regulation describes the membership, function and working mechanism of the forum.
The forum membership is separated into national, provincial and regency/city levels. In
general, the membership consists of:a. The Minister of Public Works, the Minister of Transportation, the Minister of Industry andthe Minister of Research and Technology for the national level, or the Governor for theprovincial level, or the Head of Regency/Mayor for the regency/city level.
b. The Head of the Indonesian National Police for the national level, or the Head of Provincial
Police for the provincial level, or the Head of Resort/City Police for the regency/city level.
c. State-owned companies related to road transport and traffic matters
d. Associations of public transport companies
e. Representatives from higher education institutions
f. Road transport and traffic experts
g. Non-governmental organizations
h. Road transport and traffic observers
This forum was established in 2011.
(4) Organizations responsible for executing the policy
All the members represent the organizations involved in this forum.
(5) Scope of the policy and source of funding
This policy covers the national level and funded from national and local government budgets.
(6) Impact of policy
Since the forum was established in 2011, it is too early to identify its impacts.

5.2.5 National General Plan on Road Transport and Traffic Safety (RUNK)(1) Background
In March 2011, the United Nations General Assembly designated the period 2011–2020 as the
Decade of Action (DoA) for Road Safety, with the aim of controlling and reducing traffic
accident fatalities globally by intensifying safety programs at the national, regional and global
levels. This concept is in line with the message of Indonesian Law No. 22 of 2009 regarding
road transport and traffic, particularly regarding the need to develop the National General Planon Road Transport and Traffic Safety (RUNK). Having this momentum, the government ofIndonesia established the RUNK and declared DoA to be part of it.[2]63Changes in Traffic Safety Policies and Regulations in Indonesia (1950-2010)

Nahry, Soehodho, Tjahjono(2) Objectives
RUNK is intended to be a guide for stakeholders of road safety in planning and implementing
road safety programs in coordinated and integrated ways. Moreover, RUNK is also intended
as a guide for local governments to incorporate the plan into the implementation as programsof their regions.
(3) Content and period of policy
RUNK involves not only the development of national programs on road transport and traffic
safety, but also provision and maintenance of road safety facilities, studies on road safety, androad safety management.
In order to ensure its sustainability, RUNK encompasses a vision, missions, directions, targets,
strategies, policies, programs and activities.
The development of RUNK is based on the following five pillars of road safety:
a. Road safety managementb. Safer roadsc. Safer vehicles
d. Safer road users
e. Post-crash action.
Programs and activities are formulated within each pillar, and the associated indicators,
parameters and targets are set for five consecutive 5-year periods.
Policies established for the first 5-year period include the following objectives:a. Redefine some terminologies related to traffic accidents and set a standard operational
procedure for accident care.
b. Harmonize the information flow, communication, coordination and cooperation among
stakeholders.
c. Synchronize the financial resources from the government, business world, communities
and road users.
d. Encourage the stakeholders involved in research and education on traffic safety as well as
data and traffic accident surveillances.
The programs are also provided by the leading and supporting sectors responsible for theaction of the each program, namely, the National Development Planning Agency, the Ministryof Transportation, the Ministry of Public Works, the Ministry of Health, the Ministry ofCommunication and Information, the Ministry of Research and Technology, the Ministry of
Education, the Ministry of Industry, the Ministry of Internal Affairs, the Ministry of Justiceand Human Rights, the Ministry of Labor, the Ministry of Religious Affairs, the Ministry ofSocial Affairs, the Ministry of the Environment, insurance companies, local governments, thebusiness world, the Road Transport Entrepreneur Organization, national/international partners,

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higher education institutions, and communities.
RUNK was launched in 2011.
(4) Organizations for executing the policy
All the organizations involved in RUNK are assigned as executors of the programs.
(5) Scope of the policy and source of funding
RUNK covers the national level, but has not yet been legalized by government regulation.
(6) Impact of policy
Since RUNK was launched in 2011, it is too early to identify its impacts.

5.2.6 Indonesia Integrated Road Safety Management Systems (IIRMSs)(1) Background
The Indonesian government recognizes that traffic congestion in the cities and intercities has
adverse impacts on macroeconomic growth. In order to overcome such problems, thegovernment of Indonesia, working through the Ministry of Public Works, created the Strategic
Roads Infrastructure Project (SRIP) with the World Bank to improve the capacities of thenational road networks of some big cities and intercities on Java and Sumatra islands. One ofthe objectives of SRIP was to improve the safety of road users through creation of theIndonesia Integrated Road Management Systems (IIRMSs). The Ministry of Transportationand the Indonesian National Police were assigned as Project Implementing Units.[4](2) Objectives
IIRSMSs was aimed at:a. Developing the National Road Safety Strategy and the implementation framework of theinstitutions and policies involved in road safety.
b. Developing road safety management and a database system of road traffic accidents.
(3) Content and period of policy
This project consisted of the following elements:
a. Building a road safety “Results Focus” in Indonesia through capacity building; detailed
planning for a multi-sectoral pilot project and preparation of an integrated road safety
strategy, led by the Directorate General of Land Transport with involvement of key roadsafety agencies.
b. Creating a specification document that details the design of a road safety management
information system, using accident data from the Indonesian National Police and othersources.

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Period of project: September 2007–December 2011.
(4) Organizations responsible for executing the policy
IIRMSs was conducted by the two Project Implementing Units:
a. Directorate of Land Transport Safety of the Ministry of Transportation, which was
responsible for the development of the long-term strategies and the implementation
framework of the institutions and policies involved in road safety.
b. Directorate of Traffic of the Indonesian National Police, which was responsible for thedevelopment of the database system for road traffic accidents and road safety management.
(5) Scope of the policy and its sources of funding
IIRSMSs covered the road networks of some big cities and intercities on Java and Sumatra
islands, and was financed with a World Bank loan.
(6) Impact of the program
As one focus of this project was to set up a database system for road traffic accidents, theprogram encouraged the Indonesian National Police to treat traffic accident data more
intensively and professionally, leading to an increase in the amount of traffic accident datacollected. This resulted in an extremely large jump in the number of accidents reported in2010. As part of establishing the database system, the year 2009 was selected as the current
reference point for the traffic accident analysis.

6. Review of Major Changes in Traffic Safety Policies andRegulations
In general, the laws and associated government regulations discussed herein were intended to optimize
the utilization of network and traffic movement in order to ensure the security, safety, orderliness andsmoothness of road transport and traffic. Most of the clauses of those laws and regulations did not
explicitly mention about the issues of traffic safety, except for safety as a final target of road transport
and traffic management.
The first government regulation concerning the road transport and traffic was Indonesian Government
Regulation No.26 of 1985. It was derived to endorse implementation of Indonesian Law No.13 of1980. Even though no clauses mentioned traffic safety explicitly, it was understood that this regulation
was intended to make people safe in their utilization oftransportation. It is believed that thisregulation contributed to the decreasing trend in the number of accidents between 1985 and 1993.
Reflecting mounting concern about traffic safety, Indonesian Government Regulation No. 43 of 1993highlighted the issue of traffic safety explicitly, albeit simply, in its two clauses on the definition of
traffic accidents, and on the authority for traffic accident data reporting, recording and investigation.

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These clauses were produced to highlight the importance of traffic accident data reporting andrecording.
This regulation defined fatalities as traffic accident victims who die within 30 days after the crash.
However, in practice, the Indonesian National Police categorized as fatalities only victims who died at
the scene, and categorized victims who died on the way to the hospital or within 30 days after thecrash as seriously injured victims [12]. To date, the Indonesian National Police still use thesedefinitions, while insurance companies and the Ministry of Health use different definitions.
Consequently, there were still disparities between the data collected by different units of theIndonesian National Police (internally different) and also between the data of police units and otherinstitutions related to traffic accidents (externally different) [12].
Moreover, the Indonesian National Police only took into account the road traffic accidents that were
processed up to the courts. All the other road traffic accidents were not counted in the data base.
In addition to the problems of traffic accident definitions, and the way the traffic accidents wereconsidered in the database, there was an important issue concerning the position of the Indonesian
National Police within the government. Before 1999, the Indonesian National Police were organizedunder the Indonesian National Armed Forces. This position made the police more concerned about
security issues than about safety ones. Due to this situation, police concern about traffic accident
issues, including the issue of data reporting and recording, were likely diminished around 1980. It is
understood that this may lead to a decrease in the traffic accident rate due to the problem ofunderreporting.

However, as mentioned above, such a trend may also due to the existence ofregulations related to traffic and road transport.
In 1999 the Indonesian National Police was separated from Indonesian National Army. This move wasaimed at making the Indonesian National Police more professional in community services, including
safety and security services. As a result, traffic accident data management started to be addressed more
professionally, with the police working to recover the data recording system at the national level.
These milestones are believed to have contributed to the increasing trend in traffic accidents after
2000, particularly the extreme rises in 2005 and 2006 (see figure 12). It is quite reasonable to presume
that such increases were more affected by the intensive data collection, rather than the effect ofcertain serious technical problems in traffic safety management. The significant rise in 2005 and 2006
was presumed due to the individual-based data recording program rather than institutional-based one.

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Source : Compiled using data from [1], [3], [4], [5], [6], [10]Note: IGR : Indonesian Government Regulation
IL : Indonesian Law

Figure 12 Trends in road traffic accidents in association withtraffic safety laws, regulations and program

In line with its policy concerning a data recording system, in 2007-2011 the Indonesian National
Police conducted a project with a World Bank loan to develop IIRMSs (Indonesia Integrated Road
Safety Management Systems). It focused on the issues of traffic accident database, including theimprovement of accident data reporting, recording and auditing. Again, it was believed to havecontributed to the increasing trend in traffic accidents.
Besides the problem of data collection, the increasing trend in traffic accidents after 2000 was believed
to be due to the extremely rapidly increasing vehicle ownership, which was dominated by
motorcycles. During the periods 1981-2002, 2002-2004, 2004-2007 and 2007-2009, ownership ofmotorcycles grew annually by about 600,000, 3 million, 6 million and 5 million units/year respectively.
This is supported by the traffic accident figures for 2009, which show that motorcycles significantly
dominated traffic accidents in all provinces. The total number of motorcycles involved in traffic
accidents in 2009 was 72,815 (69.7% of the total number of motor vehicles involved in accidents).
This figure was even larger in some provinces, such as 75% on Java Island (East Java Province),
73.3% on Kalimantan Island (East Kalimantan Province) and 78.9% on Sulawesi Island (Central
Sulawesi Province).

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Furthermore, as an improvement of the preceding law, Indonesian Law No. 22 of 2009 provides moreclauses concerning road transport and traffic safety and security, as well as traffic accidents. Theseclauses were then endorsed in government regulations concerning:- Data inventory and analysis on traffic violations and accidents (Indonesian Government
Regulation No.32 of 2011)- Coordination among the stakeholders of road transport and traffic (Indonesian Government
Regulation No.37 of 2011)-

Development of the National General Plan on Road Transport and Traffic Safety 2011–2035

It is realized that those were critical issues that had been raised to reemphasize the importance of data
inventory and analysis, coordination and planning on traffic safety programs.
Besides the issue of data inventory, the other important issue addressed in Indonesian Law No. 22 of2009 was the coordination among the stakeholders involved in road transport and traffic problems. As
described above, the organizations involved in road transport and traffic problems, including the roadtraffic safety issues, are the Ministry of Public Works, the Ministry of Transportation, the Ministry ofIndustry, the Ministry of Research and Technology and the Indonesian National Police (refer toIndonesian Government Regulation No. 37 of 2011). The Forum of Road Transport and Traffic wasintroduced to highlight the importance of collaboration and coordination among those institutions, andthe Ministry of Transportation was assigned to take the lead of the forum. Furthermore, in order tofocus on traffic safety issues, each of those institutions developed a special unit or division to be
responsible for road safety matters.
Indonesian Law No. 22 of 2009 also addressed the establishment of National General Plan on Road
Transport and Traffic Safety (RUNK) for the period 2011–2035. This plan was a comprehensive longterm plan on traffic safety that was in line with the spirit of the United Nations’ Decade of Action(DoA) for Road Safety 2011-2020. RUNK was developed to be a guide for implementation of nationalsafety programs, and encompasses strategies, policies, programs, indicators and targets to be
implemented in five consecutive time periods. RUNK was launched in June 2011, together with thelaunching of the DoA of Indonesia, and it demonstrated that the Indonesian government was devoting
serious attention to controlling and minimizing the number of traffic accidents and fatalities. However,it has not yet legalized by the implementation regulation.
Furthermore, some safety programs have been conducted in last decade by the central or local
governments and communities, either in the form of international collaboration/partnership or selfconducted programs, at the local, national, regional or international level in order reduce the traffic
accidents. Those programs are GRSP (Global Road Safety Partnerships, 2003-2007),

ITSAP(Indonesia Transport Safety Assistance, 2010-2014), Police Goes to Campus, Safety Riding, Traffic
Safety Campaign, School Security Patrol, Traffic Management Center, etc.
Again, as Indonesia is still dealing with the recovery of accident database, it is quite injudicious toinvestigate accurately the effect of those programs on the national trends in accident data.

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7. Conclusions
Based on the analysis carried out on the time series data, as well as regulations related to traffic
accidents in Indonesia during 1970–2010, the following points can be highlighted:(1) The growth rate of motor vehicles in Indonesia continuously increased between 1980 and 2009,
especially from 2000-2009, and was dominated by motorcycles. Moreover, motorcycles are
suspected to have greatly contributed to the increasing trend of traffic accidents after 2000.

(2) The Indonesian government has devoted increasing attention to road traffic safety issues in last
three decades, as evidenced by the laws and regulations produced by the government to support
the safety programs. Some critical issues have been raised to underline the importance of the effort
to reduce the number of traffic accidents. Those include accident data inventory and analysis,organization and coordination among the stakeholders of traffic safety and planning of traffic
safety programs. In terms of organizations and coordination, some institutions having a major rolein traffic safety have established special units/divisions to handle road safety issues, and a forum
has been set up to coordinate the stakeholders of traffic safety. Moreover, the National General
Plan on Road Transport and Traffic Safety has been also created to be a guide for stakeholders ofroad safety in planning and implementing road safety programs in coordinated and integrated
ways.

(3) The recording and reporting of traffic accident data and analysis before 2009 was fairly poor,
partly due to underreporting, resulting in the skewing of the traffic accident data collected.
However, the government, particularly the Indonesian National Police, has intensively improved
its database in last two decades. This may be a factor behind the increasing trend in traffic
accidents for the last two decades. Moreover, this trend is also suspected to be due to theextremely rapidly increasing number of motor vehicles, during the last decade, particularly
motorcycles.

(4) Since the Indonesian National Police is still dealing with the recovery of accident data base andthe massive safety programs (RUNK) that are still to be implemented, it is quite injudicious toinvestigate accurately the impact of safety programs or regulations on the national trends in traffic
accidents during the period 1970-2010.

References :1.

http://www.bps.go.id

2.

http://www.dephub.go.id

3.

http://www.djpp.depkumham.go.id

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4.

http://www.ibrd-srip.com

5.

http://www.setneg.go.id

6.

Kepolisian Republik Indonesia , Sub Direktorat Teknologi Informasi, National Traffic
Management Center (2010).

7.

Statistical Pocket Book of Indonesia 1956. BPS Djakarta

8.

Statistical Pocket Book of Indonesia 1958. BPS Djakarta

9.

Statistik 60 Tahun Indonesia Merdeka (2005). Biro Pusat Statistik.

10. Statistik Indonesia . Biro Pusat Statistik (yearly publication)
11. Statistik Kendaraan Bermotor dan Panjang Jalan. Biro Pusat Statistik (yearly publication)
12. Susilo, B.H. (2009) Pengembangan Metode Penyeragaman Data Korban Meninggal Dunia
Kecelakaan Lalulintas Jalan, Disertation, Civil Engineering Doctoral Program, Graduate Program,
Universitas Katolik Parahyangan, Bandung .

Author:Dr. Ir. Nahry, M.T.
Teaching Staff and Researcher,
Department of Civil Engineering, Faculty of Engineering,
Universitas Indonesia, Indonesia

Nahry is a teaching staff and researcher in the Civil Engineering Department of Universitas Indonesia.
She received her Master’s and PhD degrees from Universitas Indonesia. For more than 15 years she
has conducted research on public transport planning and operations, and logistics, and has been
awarded research grants from Universitas Indonesia and the Indonesian Ministry of Education andCulture. Some of her research has been published in international journals. She is a member of theIndonesian Transportation Society and the Eastern Asia Society for Transportation Studies.

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Co-Authors:
Prof.Dr. Ir. Sutanto Soehodho, MEng.
Professor on Transportation
Department of Civil Engineering, Faculty of Engineering,
Universitas Indonesia, Indonesia

Prof. Sutanto Soehodho is a Professor of Transportation in the Civil Engineering Department of
Universitas Indonesia. He received his Master’s and PhD degrees in transportation systems andoptimization from the University of Tokyo. His research interests include transport planning andmodeling, public transport network and schedule optimization, and logistics. He is a tenured faculty
member at the university with more than 17 years experience in research and consulting. Recently,
Prof Sutanto has also been appointed a member of Public Policy Committee at the Ministry of State
Owned Companies of the Republic of Indonesia, and Deputy Governor of Jakarta for Trade, Industry
and Transportation. He also has long cooperated with the Indonesian Police Department on road safety
matters.

Tjahjono, Tri, PhD.
Senior Lecturer,
Department of Civil Engineering, Faculty of Engineering,
Universitas Indonesia, Indonesia

Senior lecturer in transportation. Member of the East Asia Society of Transportation Studies (EASTS)
and the Indonesian Transportation Society (MTI). PhD from Leeds University, UK. Research interests
include transport safety, traffic accident prevention and analysis, and safety management systems. Has
received research grants from the Universitas Indonesia and the Ministry of Education and Culture’s
Directorate General of Higher Education.

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