Driver education and graduated licensing in North America: past, present, and future

PROBLEM: A stated objective of driver education in North America is to produce safer drivers, typically defined as drivers less likely to crash. This paper examines the extent to which driver education has achieved this objective independently as well as the extent to which such programs can support the success of graduated licensing in reducing young driver crashes. In so doing, it discusses past experiences, recent developments, and the future direction of driver education and training in relation to graduated driver licensing. METHOD: Literature review and synthesis. RESULTS: Driver education programs have yet to demonstrate consistent attainment of their safety objectives. Moreover, they have not been found to enhance the safety effectiveness of graduated licensing programs--indeed, some practices, for example, "time discounts" for driver education have actually had a detrimental effect on teen safety. DISCUSSION: Despite its disappointing safety record to date, it is important not to abandon driver education. In particular, there are opportunities to improve driver education so that it achieves its safety objectives, and ensure that programs in the future complement graduated driver licensing and contribute to its overall safety benefits. Current and future efforts to improve driver education and better integrate it with graduated licensing programs, however, need to be rigorously evaluated to determine what does and does not work to reduce young driver crashes, and as importantly, to understand why this is the case. IMPACT ON INDUSTRY: Improved driver education integrated with graduated driver licensing has potential safety benefits.     

Graduated driver licensing research in 2004 and 2005

This is the second update of research on graduated driver licensing (GDL) and teenage drivers. It briefly summarizes research in progress and research published since the January 2004 update (Hedlund, J. & Compton, R. [2004]. Graduated driver licensing research in 2003 and beyond. Journal of Safety Research 35(1), 5-11). Research has been very active, especially on teenage driver risk factors, GDL program evaluations, the role of parents in managing and training their teenage drivers, and driver education. Results have strengthened the case for GDL, for nighttime and passenger restrictions, and for extended supervised driving practice.     

Graduated driver licensing: the New Zealand experience

In New Zealand, on 1 August 1987, a three-stage graduated driver licensing (GDL) system that applied to all new drivers aged 15-24 years was introduced. The essential elements of GDL were a 6-month learner license (supervised driving) and an 18-month restricted license stage (with restrictions on night driving and carrying passengers). A blood alcohol limit of 0.03 mg% applied at both stages. EVALUATION STUDIES: Early studies indicated that young people were reasonably accepting of the restrictions, with the passenger restriction being the least acceptable. Problems of compliance with the restricted license driving restrictions were reported. Evaluations of the impact of the graduated driver licensing (GDL) on serious traffic-related injury showed that up until 1991-1992, an 8% reduction could be attributed to GDL. At this time, it was considered that reduced exposure was the main reason for this reduction. However, the number of fatalities and hospital admissions among young people continued to decline, as did the population rate and the rate per number of licensed drivers among the young driver age group. A further evaluation study showed that drivers with a restricted license had a smaller proportion of crashes at night, and with passengers, compared with drivers licensed before GDL. IMPACT OF GDL: These results suggested that GDL restrictions had contributed to the reduction in crashes among young people and that it was not simply a case of reduced exposure to risk. An update of the most recent crash statistics indicated that, compared with older age groups, the fatal and serious injury crash rate among young people has remained substantially below the pre-GDL level. This suggests that the impact of GDL has not diminished over time.     

Impact of the Graduated Driver Licensing Program in Nova Scotia

A comprehensive evaluation of the Nova Scotia graduated licensing program was conducted. This program was implemented on October 1, 1994 and applies to all novice drivers, regardless of age. It spans 2 1/2 years in two stages: a 6-month learner phase, followed by a 24-month newly licensed driver phase. During both phases several driving restrictions apply, most notably a requirement for adult supervision at all times in the learner phase and a night driving restriction from midnight to 5 a.m. in the newly licensed driver phase. The evaluation of this program used a series of increasingly refined analyses that controlled for the influence of other explanatory variables. All the analyses showed that the graduated licensing program in Nova Scotia was associated with a significant reduction in crashes. For drivers age 16, there was a 24 percent decrease in total crashes during the first full year of the program and a 37 percent reduction during the first 3 years of the program. Comparable decreases occurred in injury crashes. Improvements also were observed for all novice drivers, not just those who are young - there was a 19 percent decrease in the crash rate for all novice drivers. Comparisons with results from other graduated licensing programs indicate the Nova Scotia program has been more effective than others in reducing crashes.     

The Effects of Learner's Permit Requirements in Tennessee

Sixteen and 17 year-olds were surveyed at motor-vehicle offices in Tennessee after qualifying for their first driver's license. When the survey was conducted during October and November 1995, neither a learner's permit nor completion of a driver education course was required to obtain a license at age 16 or 17. The survey was repeated during December and January 1996–97, approximately one year after a requirement to hold a learner's permit for 90 days or complete a driver education course was implemented. Results from the 1991 drivers (ages 16 and 17) surveyed indicated Tennessee's licensing law change was associated with approximately 100 additional miles and 8 additional hours of practice driving prior to licensure for the typical 16 or 17 year-old, most often while supervised by a parent or guardian. Results are discussed in relation to the prelicense practice driving requirements of graduated licensing systems.     

Contribution of the components of graduated licensing to crash reductions

PROBLEM: It has been established that graduated licensing systems lead to crash reductions among beginning drivers. What is the contribution of the various components of graduated licensing to these reductions, and how can their effectiveness be increased? METHOD: Literature review and synthesis. RESULTS: Extended learner periods, nighttime restrictions, and passenger restrictions have contributed to crash reductions. Presently there is insufficient evidence concerning the contribution of seat belt or cell phone provisions, or contingent advancement penalties. DISCUSSION: There is more to learn about graduated licensing and its component features. However, there are ways to increase the contribution of all the components through stronger laws and greater compliance. With the right kind of community commitment and focus, substantial further reductions in young driver crashes are achievable. IMPACT ON INDUSTRY: The results can guide states in establishing graduated licensing systems that maximize crash reductions.     

The impact of changes to the NSW graduated driver licensing system on subsequent crash and offense experience

Introduction: In mid-2007 the State of New South Wales (NSW) in Australia introduced modifications to the existing graduated driver licensing system, lengthening the mandatory number of supervised hours for learner drivers aged under 25 years from 50 to 120 and extending the minimum learner period from 6 to 12 months. Additional driving restrictions were also introduced for young drivers in the two provisional licensed periods, P1, P2. This paper aims to evaluate this change by comparing the crash and offense experiences of young learner drivers before and after it occurred. Method: From driver licensing files supplied by the NSW transport authority two cohorts of persons obtaining their initial learner's permits in the year prior to the changes and in the subsequent year were constructed with demographic data, dates of transition to the driving phases, dates of crashes, and dates and types of traffic offenses. Both cohorts comprised around 100,000 individuals. Crash rates per 100 years of person-time under observation post P1 with their standard errors were calculated. Using a survival-analytic approach the proportion of crashes of all types were graphed in three month periods post P1. Sexes were treated separately as were initial learner ages of 16, 17, 18–21, and 22–24 years. The distribution of traffic offense types during P1 and P2 phases were also compared. With such large numbers formal statistical testing was avoided. Results: No meaningful differences in the crash or offense experiences of the two cohorts in either sex or at any age were observed. Delaying progress to unsupervised driving has road safety benefits. Conclusions: At least in conditions similar to those in NSW, requiring more than 50 h of supervised driving seems to have few road safety benefits. Practical applications: Licensing authorities should be cautious in extending the mandated number of supervised driving hours beyond 50.     

Recent developments in young driver education, training and licensing in Australia

Australian young driver education and training approaches have differed from the mandatory school-based programs found internationally; generally comprising voluntary programs conducted outside of licensing. This paper reports on recent developments pertaining to the pre-learner, learner, and provisional license stages. Given its important context, state-based graduated driver licensing systems are also reviewed. There has been a shift toward starting driver education younger (pre-learner), greater involvement of parents, and more school-based programs; many now conducted by licensing authorities. The majority of initiatives are yet to be evaluated, particularly relative to crash outcomes; however, some studies suggest other positive outcomes, including increased supervised practice and delayed licensure. Furthermore, the federal government is proceeding with plans for a national license-based program. Several jurisdictions have also announced the introduction of passenger and nighttime restrictions on provisional licenses. Together these initiatives offer promise of reductions in young driver-related fatalities and injuries in the very near future.     

The learner's permit

PROBLEM: This paper considers the role and value of an extended learner's period in a graduated licensing system. METHOD: Review and synthesis of the literature. RESULTS: The learner's permit allows beginners to practice under supervision before attempting the road test for a driver's license. A learner's permit stage was an integral part of the "provisional" (graduated) licensing model initially formulated by NHTSA in the mid-1970s. Almost all Canadian provinces and U.S. states now have graduated licensing (GDL) programs that typically include an extended period of supervised driving. Most parents and teens favor the learner stage, and consistent with the intent of GDL, most learners are practicing and gaining driving experience under low-risk conditions. Research shows that very few learners crash while under supervision and that an extended learner stage has safety benefits. IMPACT ON RESEARCH, PRACTICE AND POLICY: Further research is needed on the safety benefits of an extended learner stage and on its optimal features.     

Parental supervision of teenage drivers in a graduated licensing system

OBJECTIVES: Most states now have lengthy learner periods for young, beginning drivers as part of their graduated driver licensing (GDL) systems. Although parents play a vital role during the learner stage of GDL by supervising driving practice, virtually nothing is known about the nature and quality of parental supervision. The objectives of this study were to investigate parents' supervisory behavior and parent-teen relationships during the learner stage of graduated licensing and to evaluate two approaches for assisting parents in supervising their teenager's early driving experience. METHODS: Families of teenagers applying for a learner permit received either a booklet describing highly structured practice sessions for beginning drivers, a series of "tip sheets" offering more generalized guidance, or no special materials. Questionnaires were sent separately to parents and teenagers three to six months after teenagers obtained their permit. RESULTS: Of 1,190 participating families, 653 parents (55%) and 609 teenagers (51%) responded. Both parents and teenagers perceived parents as supportive and helpful during driving sessions. Parents often demonstrated positive behaviors, such as complimenting their teenager and pointing out possible hazards; they also exhibited less desirable behaviors, such as raising their voice, but these were less frequent. A majority of parents (71%) and teenagers (52%) reported that they enjoyed spending this time together. About four months after obtaining a permit, most parents believed their teenager did not yet have enough experience and was not ready to drive unsupervised. Although the reported behaviors are encouraging, within-family agreement was low on most items. Finally, efforts to assist parents proved unsuccessful. Although parents thought the booklet and tip sheets were helpful, most used these materials only in a general way. CONCLUSIONS: The extended learning experience required by GDL programs is a positive experience for many families. However, finding a method for helping parents achieve maximum benefits during this process will be challenging. The results also suggest that current requirements in the learner phase of most state GDL systems (six months; 30-50 hours) may be inadequate to ensure that teenagers obtain a sufficient amount of experience to begin driving safely on their own.     

Aggressive driving behaviour in young drivers (aged 16 through 25) involved in fatal crashes

IntroductionWe wished to determine the extent to which number of passengers, driver age, and sex were associated with aggressive driving actions (ADAs) in young drivers involved in a fatal crash.MethodsWe used U.S. fatal-crash data from Fatality Analysis Reporting System (FARS), 1991 –2008. Proxy measures of aggressive driving included ADA presence and speed differential (posted speed limit minus estimated travel speed). We examined the odds of an ADA and speed differential in young drivers (aged 16 to 25) by passenger status.ResultsCompared to driving alone young drivers (aged 16) had increased odds of an ADA between 14% (OR: 1.14; 95% CI: 1.07; 1.22) and 95% (OR: 1.95; 95% CI: 1.40; 2.74) when accompanied by one and five passengers, respectively. Further, carrying a higher number of passengers was a stronger predictor of speeding in younger drivers.ConclusionsThis study supports the use of graduated licensing approaches. Specifically, developing interventions to reduce aggressive driving appear imperative.Impact on IndustryWhile the results of our study support the use of graduated licensing approaches there is room for improvement. Our study indicates that tackling impaired driving is not sufficient to drastically reduce aggressive driving among the youngest drivers. Further research on young drivers is required to understand the influence of peers and the role of gender on driving behavior. Strategies to reduce aggressive driving behaviors among the youngest drivers may not only prevent crashes during their early driving careers but may also translate into a reduced crash risk over their lifetime.     

Encouraging compliance with graduated driver licensing restrictions

PROBLEM: Although graduated driver licensing (GDL) programs have reduced the high crash rates for 16-and 17-year-old drivers, research suggests that some teenagers fail to comply with restrictions on nighttime driving and carrying passengers. METHOD: A program to encourage compliance with GDL restrictions and seat belt requirements was implemented in Guilford County, North Carolina. The program combined increased enforcement with a multi-faceted publicity campaign drawing attention to the enforcement activity. A comparison community was studied to assess whether changes over time could be reasonably attributed to the program. RESULTS: Several measures indicate that greater enforcement did occur in the intervention community and that teenagers perceived the increase. However, self-reported data and direct observations of young drivers in the intervention and comparison communities showed the program resulted in only modest changes in compliance with GDL restrictions. DISCUSSION: The program put in place the mechanisms known to produce changes in driver behavior, but these may have been insufficient to alter the behavior of the minority of teenagers (and parents) who were not already complying with restrictions. However, the modest changes in young driver behavior plus the clear changes in both actual and perceived enforcement suggest that high visibility enforcement programs merit further use and evaluation in other communities, particularly those where compliance with GDL provisions is lower than in Guilford County.     

Specific and long-term effects of Nova Scotia's graduated licensing program

A graduated licensing (GL) program was introduced in Nova Scotia, Canada, in October 1994. Previous research has shown that it reduced collisions in the short term. The present study examined the relative contribution of each stage of the program (i.e., learner and intermediate levels) and the program's impact after beginning drivers graduated to full licensure. The research focused on teenage beginning drivers (age 16-17), but the effects on older beginners also was examined. Per-driver crash rates of two groups of novices selected from driver records in Nova Scotia were compared. One group (pre-GL) received their learner's permits during the 2 years before the program was implemented, and the second group (GL) received their learner's permits during the 2 years after implementation. The findings clearly establish that most of the collision reduction in Nova Scotia's program occurred during the first year of the program, particularly during the first 6 months when the majority of novices were driving under supervision. The collision rate for 16 to 17-year-old GL novices was 50% lower than the rate for pre-GL novices during the 6 months after they received their learner's permits, and about 10% lower during their first 2 years of licensure when unsupervised driving from midnight to 5 A.M. was prohibited. Much of this improvement for 16 to 17-year-olds occurred during restricted night hours. Collision rates also were lower during nonrestricted hours in the initial 6 months of licensure. The 3-month "time discount" for driver education provided no safety benefit, and GL novices with driver education had collision rates that were not lower than pre-GL novices. There was no long-term effect found for the program after 16 to 17-year-olds graduated to full licensure. For older beginning drivers, crash rates during the first year after obtaining a learner's permit showed a 31% reduction. This effect diminished rapidly. There was only a 2% reduction during the first year of licensure, and crash rates increased during the following 2 years. Overall the data indicate substantial benefits of graduated licensing for 16 to 17-year-old beginners, but no benefits beyond the learner stage for older beginners.     

Other high-risk factors for young drivers--how graduated licensing does,doesn't,or could address them

PROBLEM: Young drivers, particularly those who are newly licensed, have a very high crash risk. This paper examines the risk factors underlying their high crash rates and assesses the extent to which existing graduated licensing programs address these risks and whether improvements to these programs should be considered. METHOD: Review and synthesis of the literature. RESULTS: The elevated risk among young drivers of being in an injury crash is the result of a number of factors found alone or in combination, such as risky driving, alcohol use, seat belt nonuse, driver distraction, fatigue, and vehicle choice. Nighttime and passenger restrictions, adopted widely in the United States, work by keeping drivers out of hazardous situations rather than by addressing risk factors directly. However, the risk factors remain in play in driving situations not specifically restricted by law. Although other graduated licensing components adopted around the world-more stringent exit tests (i.e., you need to pass a test to move to the next stage), hazard perception tests, and restrictions on speed, vehicle power, and roadway access-make sense based on the identified risk factors, they are not yet supported by research. Should research findings warrant it, consideration should be given to providing guidance to parents about how to keep their beginning drivers safe, including information on vehicle choice. IMPACT ON RESEARCH, PRACTICE, AND POLICY: Researchers should continue to monitor and to evaluate innovative approaches to reduce the crash risk of young drivers. The effectiveness of new approaches should be established before adoption on a wider scale takes place.     

Sixteen-year-old drivers in fatal crashes, United States, 2003

OBJECTIVE: Key features of graduated licensing were introduced in 46 states and the District of Columbia between 1993 and 2003. State evaluations consistently have reported positive overall effects and positive effects of nighttime and passenger restrictions. Sixteen year-olds are the main target of graduated licensing, and the present study investigated changes in their fatal crash involvement and crash characteristics that have taken place nationally during 1993-2003. By looking at 16 year-olds nationally, the study does not constitute a direct test of the effect of graduated licensing laws per se. METHODS: Data on fatal crashes were obtained from the Fatality Analysis Reporting System. Sixteen year-olds were compared with older drivers. RESULTS: During these years, the extent to which 16-year-old drivers were in fatal crashes decreased substantially compared with older age groups. The drop in the per capita crash rate for 16 year-olds was 26%. The major change was a reduction in crashes involving transporting young passengers, especially in jurisdictions with restrictions that target these crashes. There was no change in the proportion of fatal late-night crashes even in states restricting this activity. CONCLUSIONS: There has been some progress nationally in reducing the crash problem for 16 year-olds, but this still is a big problem. To achieve further progress, the gaps and weaknesses in present graduated licensing laws will need to be addressed.     

Responsibility of drivers, by age and gender, for motor-vehicle crash deaths

Problem: Motor-vehicle crash rate comparisons by age and gender usually are based on the extent to which drivers in a particular age/gender category are themselves injured or involved in crashes (e.g., the number of 20-year-old females in crashes). Basing comparisons instead on the extent to which drivers in various age/gender groups are responsible for deaths (including themselves) in their crashes is more revealing of their overall contribution to the problem. Methods: Data from the Fatality Analysis Reporting System (FARS, 1996–2000) were used in the analysis, which was based on crashes that involved one or two vehicles only. Drivers in fatal single-vehicle crashes were assumed to have responsibility for the crash. In fatal two-vehicle crashes, driver operator errors reported by police were used to assign crash responsibility. Results: When all crashes were considered, both the youngest and oldest drivers were most likely to be responsible for deaths in their crashes. In two-vehicle crashes, the oldest drivers were more likely than young drivers to be responsible. Young males were more likely than young females to be responsible for crash deaths, whereas females in their 50s and older were more likely than same-age males to be responsible. In terms of responsibility for deaths per licensed driver, young drivers, especially males, had the highest rates because of their high involvement rates and high responsibility rates. The majority of deaths for which young drivers were responsible occurred to people other than themselves, especially passengers in their vehicles, whereas the bulk of the deaths for which older drivers were responsible were their own. Discussion: The results highlight the contribution of young drivers to the motor-vehicle crash problem, the need for measures such as passenger restrictions in graduated licensing systems, and the need for vehicle modifications to better protect older occupants.     

Novice teen driving: GDL and beyond

The Symposium on Novice Teen Driving: GDL and Beyond--Research Foundations for Policy and Practice, held in Tucson, AZ, on February 5-7, 2007, provided a detailed overview of graduated driver licensing (GDL) and other beginning driver issues in the United States. This paper summarizes the information presented at the Symposium and in its background papers. IMPACT ON INDUSTRY: This information and summary should help all interested persons and organizations, including industry, in their efforts to improve GDL and teen driver programs in the United States, which in turn will further reduce traffic crashes and fatalities involving teenage drivers.     

Commentary: graduated licensing--moving forward or standing still?

The widespread application of graduated driver licensing (GDL), starting in the mid-1990s, has greatly reduced young driver crashes. Substantial further reductions are possible by raising the licensing age to 17. This can be done indirectly, through extension of GDL policies (minimum learner age of 16, one-year holding period), or by legislation directly establishing 17 as the licensing age. Other approaches are likely to have limited impact.     

Technology and teen drivers

The rapid evolution of computing, communication, and sensor technology is likely to affect young drivers more than others. The distraction potential of infotainment technology stresses the same vulnerabilities that already lead young drivers to crash more frequently than other drivers. Cell phones, text messaging, MP3 players, and other nomadic devices all present a threat because young drivers may lack the spare attentional capacity for vehicle control and the ability to anticipate and manage hazards. Moreover, young drivers are likely to be the first and most aggressive users of new technology. Fortunately, emerging technology can also support safe driving. Electronic stability control, collision avoidance systems, intelligent speed adaptation, and vehicle tracking systems can all help mitigate the threats to young drivers. However, technology alone is unlikely to make young drivers safer. One promising approach to tailoring technology to teen drivers is to extend proven methods for enhancing young driver safety. The success of graduated drivers license programs (GDL) and the impressive safety benefit of supervised driving suggest ways of tailoring technology to the needs of young drivers. To anticipate the effects of technology on teen driving it may be useful to draw an analogy between the effects of passengers and the effects of technology. Technology can act as a teen passenger and undermine safety or it can act as an adult passenger and enhance safety. Impact on industry: Rapidly developing technology may have particularly large effects on teen drivers. To maximize the positive effects and minimize the negative effects will require a broad range of industries to work together. Ideally, vehicle manufacturers would work with infotainment providers, insurance companies, and policy makers to craft new technologies so that they accommodate the needs of young drivers. Without such collaboration young drivers will face even greater challenges to their safety as new technologies emerge.     

Enhancing the effectiveness of graduated driver licensing legislation

PROBLEM: Many states have enacted graduated driver licensing (GDL) systems in an effort to reduce the very high crash rates of young beginning drivers. This article addresses how to achieve the maximum benefit from GDL by ensuring compliance with protective restrictions. ENHANCING GDL THROUGH SYSTEM STRUCTURE: The major crash reductions due to GDL systems result from the protective restrictions during the initial two levels, which isolate novice drivers from the highest risk driving situations. Accordingly, GDL systems should include protective restrictions that adequately control the greatest dangers facing young drivers: multiple teen passengers and night driving before midnight. ENCOURAGING COMPLIANCE THROUGH SYSTEM STRUCTURE: Including protective restrictions that are supported by parents and teens will encourage compliance. Furthermore, linking a teen's advancement through GDL to demonstrated responsible driving will likely encourage compliance more than threatening punishment for violations. ENCOURAGING COMPLIANCE THROUGH ENFORCEMENT: Parents are in a prime position to enforce most GDL restrictions, but there is some evidence they do not enforce those restrictions that they consider too extreme. Little is currently known about the involvement of law enforcement in GDL systems, but there is potential for high visibility law enforcement activities to encourage compliance with restrictions. IMPACT ON RESEARCH, PRACTICE, AND POLICY: There is a need for better designed GDL systems in many states; more research is needed to examine compliance with restrictions and to evaluate enforcement efforts by parents and law enforcement.