Although there is no specific law to limit the number of passengers in private vehicles, I think the police are empowered to summon anyone who has so many passengers crammed into a vehicle that it is not possible to be in control of that vehicle.
For example if a driver crams 8 passengers into a normal saloon car, the handling of the car will be compromised as the steering and suspension was not designed for such a load.
Before the laws are amended to require the use of seat belts for all passengers, the police should clamp down on overloaded vehicles under the sections that deals with "being unable to control the vehicle properly" or "not being in proper control of the vehicle."
A court case under such rules will require more work but I believe the existing traffic rules are adequate enough to reduce overloading NOW
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