Introduction

1.  We hope to see evidence that the Department is true to its word and that bold measures will be given proper consideration. The appalling collision rate of novice drivers clearly demonstrates that the problem must not be ignored. "Do nothing" is not an option. We will return to this issue in the next year to review progress. In the meantime, we recommend that the Department, as part of its consultation process, undertake further analysis of the collision-involvement rates among young drivers, distinct from newly-qualified drivers. (Paragraph 2)

The vulnerability of novice drivers

2.  We recommend that the Department for Transport, in collaboration with the police, should collect the data necessary to understand the scale and nature of the crash involvement of novice drivers, independently of young drivers. (Paragraph 6)

3.  Novice drivers are clearly very vulnerable on the road. They also pose considerable danger to their passengers and other road users. The Department for Transport must ensure that tackling this group of casualties is given a high priority across Government. (Paragraph 12)

4.  The overall gains made in road casualty reduction as a whole, since the targets were set in 2000, have not been matched among novice drivers. Indeed, the rate of novice driver casualties appears to be worsening, and there is little understanding about why this is the case. The measures implemented by the Department over the past twelve years have been incremental and have failed to cut novice driver casualties. A change in approach is now required. There should be research into the reasons for the increasing rate of novice driver casualties in order that policy-makers better understand the problem and are able to design initiatives to address it. The Government must consider much bolder action to prevent these tragic deaths and injuries. (Paragraph 18)

A more structured approach to learning to drive

5.  We welcome the proposals set out in the Government's Second Review of the Road Safety Strategy, and the Department's intention to reform the driver training and testing framework. (Paragraph 28)

6.  There is consensus that the process of learning to drive must be improved if casualties are to be cut; if such reforms are to be successful, it is paramount that the quality of driving instruction be significantly raised. In such a competitive commercial environment, it is unlikely that a voluntary continuous professional development scheme would be fully effective, and we therefore support a mandatory continuous professional development programme for all driving instructors. We recommend the Department, as part of its reform of the driver training and testing framework, to examine carefully ways of raising the entry requirements for registration as an Approved Driving Instructor. (Paragraph 33)

7.  It is important that the Department for Transport properly and promptly evaluates measures such as Pass Plus following their implementation. The Department's full evaluation of Pass Plus is due in December 2007—12 years after the scheme's implementation. If the results from the Association of British Insurers' ten year study are accurate, it could be that novice drivers, and others, are being given a misleading picture of the safety benefits which accrue from undergoing this extra voluntary training. (Paragraph 35)

A minimum learning period

8.  Given that work is well underway on reforms to the framework for learning to drive, we are greatly concerned that the Department has not undertaken any objective assessment of the costs and benefits—both economic and social—of changes to driving entitlement, as part of restructuring the process of learning to drive. The Minister has told us that the reforms would be based on evidence, not anecdote, and we seek reassurance that these evaluations will indeed be instrumental in determining the Department's course of action. We are furthermore concerned that the lack of evaluation of these options is indicative of a lack of ambition in the scale of change the Department is contemplating. (Paragraph 43)

9.  We consider that the evidence of the consequent prevention of death and serious injury would justify the introduction of a 12-month learning period. We recommend that a 12-month minimum learning period should be introduced as part of the structured approach to learning to drive. This would increase the minimum age at which someone is entitled to a full driving licence, and thereby able to drive unaccompanied, to 18 years, in line with most European countries. Given the risks involved in driving, it seems reasonable that the minimum age for holding a full driving licence should be 18 years. (Paragraph 49)

10.  To prevent learners bunching all their tuition into a short space of time, we suggest that they should be required to take a specified number of hours of professional tuition at different points during a 12-month period. This should also ensure that learners have experience of driving in various weather and lighting conditions. Different witnesses had different proposals about the minimum number of hours to be required, from 10 to 100 hours. We think it is reasonable to specify a minimum number of hours of professional tuition, but it should be emphasised that this is an absolute minimum. We do not believe the evidence as to what number this should be is conclusive. The figure should therefore strike a fair and proportionate balance between cost and the anticipated safety gains. (Paragraph 50)

11.  We do not recommend lowering the minimum age of obtaining a provisional licence. In its response to this Report, we invite the Department to detail what research it has undertaken or commissioned into the safety impacts of lowering the minimum provisional licence age, and what the results showed. (Paragraph 51)

12.  The impacts of a 12-month minimum learning period should be closely evaluated, with particular regard to changes in novice driver casualty rates, and inclusion in education and employment. (Paragraph 52)

13.  We will be interested to see the results of the Department's research showing what the impact has been of the Driver Record. We recommend that if the results show that it is effective, then the logbook should be made mandatory. (Paragraph 54)

14.  The 12-month minimum learning period should be accompanied by the introduction of a structured syllabus, which will spread the development of driving skills and abilities over the year. Instructors should be required to sign-off each module once the learner has consistently achieved the required standard. Learners should not be able to present to take the test until all modules have been successfully completed. This approach should go some way to raising the driving standard of test candidates. (Paragraph 58)

15.  We would also like to see clearer communication to all learner drivers (and their parents, where appropriate) that they are embarking on a year-long course, which, like all new skills, will require practice to acquire, and that there are no shortcuts. At the outset, learners should be advised of the content of the syllabus and the time it is likely to take to complete it in full. (Paragraph 59)

Attitudes to driving

16.  We are concerned that four years after its introduction, the Department has yet to publish an evaluation of the impact of the hazard perception test on novice driver collision involvement rates. (Paragraph 69)

17.  Delivered properly, hazard perception training has been shown to have a tangible effect on attitude and subsequent driving choices. We suggest that the Department's proposed "knowledge framework", should incorporate higher level functions in order to target the over-confidence displayed by some novice drivers. Learner drivers should be required to demonstrate an understanding of the consequences of one's actions and awareness of one's limitations through self-assessment training. We recommend that some component of group-based learning should be a mandatory part of learning to drive. This should cover driving theory, risks, hazard perception, self-assessment and traffic law. The activity must be part of an approved and regulated system. We encourage the Department to research what would be effective. (Paragraph 73)

18.  The Department's Road Safety Research Report No. 74 suggested that driver education and training should be set in a real-world context and should seek to address the actual beliefs, attitudes and behaviours of novice drivers. In its response to this report we invite the Department to set out how it plans to incorporate this approach. (Paragraph 75)

The driving test

19.  We agree that the driving test needs to be reformed. The driving instructors and examiners made a powerful case for allowing test candidates onto high speed roads, and if necessary onto motorways—because in some places these are the only high speed roads to be found. But such a measure should only be introduced along with a requirement for candidates to take the test in a dual-control vehicle. (Paragraph 81)

20.  A more structured approach to learning to drive should include a requirement for some tuition with an approved driving instructor in a properly equipped dual control vehicle. This would make it possible to devise a driving test which had more real-world validity, through requiring experience of all types of road and manoeuvre, and particularly those which seem to cause novice drivers such difficulty: rural roads, bends on high speed roads, and turning right from a busy major road onto a side road. The driving test content should be kept under review and be guided by research about the causes of novice driver collisions. (Paragraph 82)

21.  The Cohort Study II, commissioned by the DfT, is due to provide analysis of the driving test in summer 2007. We suggest the score threshold for passing the practical and theory tests should be revised in light of this evidence. (Paragraph 83)

22.  People who obtain driving licences through such fraudulent means are a danger to themselves and other road users. The Government must investigate the problem of test candidate impersonation as a matter of urgency. (Paragraph 84)

23.  Although we understand that it takes time to see the full effect of the implementation of new initiatives, we are disappointed by the delay in evaluating the impact of the theory test. If the results of the evaluation cast any doubt on its benefit, the Department should consider reducing the role of this element of the test. (Paragraph 87)

Graduated driver licensing

24.  Whilst we share the Minister's hope that a reformed education and training framework will instil a more responsible approach to driving; there exists little evidence that this will be adequate. (Paragraph 91)

25.  When considering the potential of graduated driver licensing systems, we hope that the Government will be led by the evidence, and not by a blind hope that more, and more effective, driver training will be adequate to prevent the large numbers of novice driver casualties (Paragraph 92)

26.  The very real risks associated with young novice drivers carrying passengers mean that young male drivers are now the biggest killer of young women in this country. (Paragraph 102)

27.  We recommend that the Department for Transport, with the Home Office, should evaluate the enforceability of two blood alcohol concentration limits: one for novice drivers, one for the general driving population. (Paragraph 109)

28.  Based on the evidence available, we believe there is a case for reducing the permitted blood alcohol concentration from 0.8g/l to zero (or 0.2g/l, which in practice is effectively zero) for novice drivers. If the Department introduces a lower permitted blood alcohol concentration for novice drivers it must be assiduous in countering any impression that it is acceptable for more experienced drivers to drive under the influence of alcohol. We understand that the Department is to shortly consult on proposals to address the problem of drink-drive collisions. We welcome this much-needed investigation and look forward to a thorough examination of what should be the permitted blood alcohol concentration for drivers. The Department for Transport must tackle drink-driving through ongoing publicity and enforcement campaigns targeted at all drivers, including the young and newly-qualified. (Paragraph 110)

29.  Taking into account the international evidence, we recommend that restrictions be introduced for newly-qualified drivers. These restrictions should be framed in a way least likely to impinge on novice drivers when the risks of collision are lower.

• Novice drivers should be prohibited from carrying any passengers aged 10-20 years, between the hours of 11 p.m. and 5 a.m.
• The permitted blood alcohol concentration should be reduced from 0.8g/l to zero (or 0.2g/l) for novice drivers. (Paragraph 113)

30.  All these decisions about the detail of novice driver restrictions under a graduated driver licensing system should be robustly grounded in the evidence of their casualty prevention potential. As an initial proposal, we suggest that the restrictions for novice drivers should apply for 12 months after passing the test. (Paragraph 114)

31.  The Department should undertake more research on exactly what combination of restrictions in a graduated driver licensing system would be most effective in reducing road death and injury among novice drivers, but this must not be an excuse for delaying action. Having implemented restrictions on novice drivers, the Department must closely monitor the impact. It must check for any unintended and undesirable results, and be ready to modify the system if negative safety effects are identified. (Paragraph 115)

32.  We acknowledge that enforcing a graduated driver licensing system may be complex. However, we accept the view of the police and others that it would be no more difficult than enforcing some existing traffic laws. In practice, it is likely to be largely self-enforcing, and where this is not the case, it would be mainly enforced retrospectively. It would provide a deterrent to high-risk behaviour and would give robust support to parents and guardians of young novice drivers, who seek to control their vehicle use. (Paragraph 120)

Driver education

33.  We understand that attitudes to road vehicles and driving are formed very early, and later influence the way people choose to behave when driving. We support the principle that school-age children should learn both about road safety in general, and specifically about the dangers and responsibilities of driving, long before they reach the age of 17. The Department for Transport must work more closely with the Department for Children, Schools and Families, local authorities and schools to ensure that the messages disseminated are effective. (Paragraph 125)

34.  We were impressed by the evidence we received from the Under 17 Car Club of the effectiveness of their off-road driver training for young people aged 11-17. We understand that schemes such as this are resource intensive and require the commitment of parents and guardians, as well as the young people themselves, but we nevertheless suggest that the potential to broaden such schemes to reach a wider group should be assessed. (Paragraph 135)

35.  We were presented with several examples of local authorities' work in promoting road safety in schools, with a particular emphasis on novice driver safety. Much of this work is impressive, but the evidence for its effectiveness is only anecdotal. Although we acknowledge that it is notoriously difficult to evaluate the effectiveness of educational initiatives, some local authorities have attempted to put a monitoring system in place. We recommend that the Department for Transport undertakes an overarching evaluation of the impact of driver education programmes, in order to help establish which schemes are most effective in reducing actual casualty numbers. The results of the evaluation should be disseminated to Local Education Authorities and schools, in the form of good-practice guidance. We commend the work of those local authorities, and Transport for London, which have sought to directly tackle the problem of novice driver casualties, through the services they provide. (Paragraph 138)

The role of the insurance industry

36.  We encourage the insurance industry to make data available to the Department for Transport, in order to help inform national road safety policies. This is a matter of national importance and collaboration and co-operation are essential. (Paragraph 140)

37.  Given the importance of understanding the nature of novice driver collisions and casualties, it is unacceptable that the Department for Transport and the police are not collaborating to make best use of existing data regarding traffic collisions and driving licence information. (Paragraph 141)

38.  We would encourage the insurance industry to re-examine the high insurance charges imposed on supervised learner drivers, in the interests of encouraging them to gain maximum practice, a factor which has been shown to be crucial in promoting novice driver safety. (Paragraph 145)

39.  The insurance industry has introduced some innovative schemes which offer discounts designed to encourage young drivers to modify their driving behaviour, by avoiding high-risk driving, such as driving at night. We welcome these schemes and note their apparent effectiveness. The insurance industry can play an important part in the effort to improve novice driver safety. We suggest that the industry explores what contribution it could make through insurance packages which draw attention to the safety risks posed by driving older vehicles with less effective safety features. (Paragraph 149)

The role of penalties

40.  The evidence we received has reinforced the recommendations made in our 2006 Report Roads Policing and New Technology. It is imperative that there is more traffic law enforcement and that roads police officers are a deterrent to drivers violating traffic law, including seat-belt wearing, speeding, drink and drug driving, and licensing and insurance requirements. This will raise the standards and safety of all drivers, including novice drivers. (Paragraph 151)

41.  The Department should examine whether there are more effective ways of communicating to learner and novice drivers the necessity of being properly licensed, registered and insured, before driving on public roads. We also suggest that there might be merit in reviewing the penalty points awarded for each type of driving offence, to ensure the penalties accurately reflect the danger and threat imposed on road users. (Paragraph 154)

42.  In light of the Minister's admission that the New Drivers Act 1995 has not been successful in meeting its objectives, the Act and its implementation, must be reviewed. (Paragraph 156)

43.  It is a matter of great concern that the penalties of disqualification and licence revocation are not serving their purpose as a deterrent, and are being widely flouted. If penalties are to be used as an incentive to safe driving behaviour, they must be properly enforced. The Home Office should examine the potential for more effective use of the penalties for disqualified and unlicensed drivers, such as vehicle forfeiture. The police must make enforcement of unlicensed driving a much higher priority. (Paragraph 159)

Conclusion

44.  The evidence demonstrating the scale of novice driver casualties is clear. The Department must now respond to this evidence by implementing measures which will reduce the risks novice drivers face and pose. The Department has published little research on the impact of changes made to the driver training and testing regimes over the past decade. This research must be published promptly. (Paragraph 160)

45.  The driver training regime needs to be modernised as a matter of urgency. We understand that the Department is due to consult on such reforms: it must be prepared to implement these changes quickly—too much time has already passed since its last consultation on this subject in 2002. (Paragraph 160)

46.  The Department for Transport should assess the risk that any changes to the training and testing regime will lead to an increase in licensing offences. The Home Office and the police must make enforcement of licensing offences, and disqualified driving, a real priority. Serious driving offences should be included in the "offences brought to justice" target for the police. (Paragraph 160)

47.  Closer liaison between the Department for Transport and the Department for Children, Schools and Families is required to ensure that education programmes target people at a young age, in order to begin to change attitudes towards driving. The Departments should work together to put road safety and driver education in the National Curriculum. (Paragraph 160)

48.  The Department should monitor and research which types of scheme have most impact in terms of reducing casualties, and disseminate the results widely. (Paragraph 160)