DRIVING STANDARDS AGENCY THE AXIS BUILDING LEARNING TO DRIVE 112 UPPER PARLIAMENT STREET NOTTINGHAM NG1 6LP A CONSULTATION PAPER A CONSULTATION ON A CONSULTATION LEARNING TO DRIVE LEARNING TO © Crown copyright 2008 dsa.gov.uk/learningtodrive Printed in the UK containing at least 80% recycled fibre CONTENTS MINISTERIAL FOREWORD 3 Marking system 39 Independant driving 39 EXECUTIVE SUMMARY 5 Situational judgement 40 Manoeuvres 40 HOW WE ARE CONDUCTING 11 THIS CONSULTATION Modular assessment 40 Feedback 41 1. THE CASE FOR CHANGE 15 6. STEP 2: AN IMPROVED LEARNING PROCESS 43 The problem 15 Syllabus and student workbook 43 Factors which contribute to the problem 16 New in-car learning 44 The results 18 7. STEP 3: BETTER INFORMATION 47 2. THE STARTING POSITION 21 ABOUT DRIVING INSTRUCTORS AND Learning arrangements 21 IMPROVED INSTRUCTOR TRAINING What the national driving test Reform of instructor training 49 currently involves 21 Our European Union obligations 22 8. STEP 4: FURTHER OPTIONS FOR 51 European requirements for driving examiners 22 LEARNING AND QUALIFICATIONS The risk of learner disengagement 22 New learning options - pre-test 51 Attitude advisor 51 3. OUR APPROACH TO REFORM 25 Driver discussion groups 53 Goals 25 Theory training 53 Methods 25 Using simulators 53 An improved driving test 25 Learning materials 53 An improved learning process 26 Pre-driver education in safe road use 54 Better information about driving instructors Lifelong driver development - post-test 56 and improved instructor training 26 Further qualifications 56 Further options for learning and qualifications 26 Motorway driving 57 Further benefits 27 Driving for work 57 Compliance 27 Drivers who offend 58 4. OTHER APPROACHES 29 9. DELIVERING THESE REFORMS 61 Regulated learning 29 Working with insurers and employers 62 Restrictions on newly-qualified drivers 31 ANNEX A: Summary of the review of evidence about the current driver training and testing regime 5. STEP 1: IMPROVING THE DRIVING TEST 35 ANNEX B: Implications for drivers of other motor vehicles Standards 35 ANNEX C: List of consultees Assessing knowledge and understanding 36 ANNEX D: Consultation response form Hazard perception test 38 The practical test 38 www.dsa.gov.uk/learningtodrive 1 MINISTERIAL FOREWORD 2 Over the past decade Britain’s roads have become But I believe it is a mistake to consider the driving much safer. The number of people killed or seriously test as the final chapter in the learning process. So, injured in road accidents has fallen by a third, making we should also encourage drivers to continue formal road travel in this country safer than almost anywhere learning after they have passed their test. Many else in the world. newly-qualified drivers recognise that they are not as safe as they could be, and yet currently only very However, while we have made progress in reducing small numbers undertake any form of extra training the number of casualties, our evidence shows that such as the Pass Plus scheme. I want to create a those most at risk are newly-qualified drivers. culture where continued learning will become the norm, making newly-qualified drivers safer. The great majority want to drive safely and abide by the law. But, their relative lack of experience of Safer driving among newly-qualified drivers should independent driving means that too often they are be reflected in lower insurance premiums and greater not properly equipped to assess and manage the risks confidence among employers. We will therefore also they face on the road. One in five newly-qualified test with the insurance industry whether additional drivers is involved in an accident within six months learning options can be reflected in lower insurance of passing their test. This is reflected in the lack of premiums, offering incentives to learners to opt for confidence employers often have in newly-qualified the most thorough learning experience both before drivers, and the higher insurance costs they face. and after their driving test. I want newly-qualified drivers to be better prepared Improving the learning and testing process is crucial for modern driving conditions. This document to producing safe drivers and safe roads. However, therefore proposes a number of reforms to the it is also essential that learners have access to high learning and testing process, to make it more quality driving instruction which also means having thorough and better tailored to equipping drivers with reliable information about the quality of options on the skills they need for independent driving today. offer. This document therefore also proposes new ways of providing information about instructors so Some of these proposals are relatively simple that learners can make informed choices, as well as developments, offering learners greater experience ensuring instructors are properly trained. of different driving conditions and requiring them to demonstrate independent driving skills. Others are These proposals are focussed on making driving on potentially more significant and could be offered as Britain’s roads even safer, reducing the numbers of learning options; these we will pilot so that we can those killed or injured in the future. We want to hear learn about their impact on safety. your views so that you can help us keep Britain’s roads amongst the safest in the world. www.dsa.gov.uk/learningtodrive 3 4 LEARNING TO DRIVE / EX ECUTIVE SUMMARY EXECUTIVE SUMMARY THE PROBLEM: TOO MANY ACCIDENTS FOR 4. In addition to the unacceptably high accident rate NEWLY-QUALIFIED DRIVERS among newly-qualified drivers, there are other costs arising from the current learning and testing 1. About 750,000 people qualify for a full car driving process. Newly-qualified drivers face high insurance licence each year and three-quarters of these are costs. Employers do not feel that they are under 25. It is unacceptable that one in five has sufficiently trained to drive for work. Some newly- some kind of accident within six months of qualified drivers are over-confident, and misjudge qualifying. Too many casualty accidents involve both their driving ability and the risks involved. young drivers and - unlike the overall figures Many still identify areas where they need to - the numbers have gone up in recent years. improve their own performance. 2. There is a challenging problem with a minority of OUR SOLUTION: IMPROVED TRAINING AND TESTING young drivers who ignore the rules of the road. But there is a much wider problem which affects 5. Our reforms are designed to reduce the number of all newly-qualified drivers, regardless of age. The casualties among newly-qualified drivers. We must great majority want to be law abiding and safe, ensure their accident rate is closer to that of but are not being prepared properly through the experienced drivers. This will bring additional learning and testing process, for the challenges benefits in higher employer confidence in newly- of driving alone. qualified drivers and lower insurance premiums. 3. The existing system is not working 6. We think that the most effective way of doing this effectively because: is to reform the way people learn to drive, and the / newly-qualified drivers can be overconfident way they are tested. This means we will: and overestimate their own ability; / create an overall driving test that gives a more / the driving test focuses too narrowly realistic and rounded assessment of whether on vehicle control; someone is fit to drive alone; / learning is carried out inefficiently, because / make learning more focused and efficient, with learners do not have sufficient information to plan greater clarity about what is required, so learners their training properly; and should not face any increase in costs; / the practical test is currently perceived as the end / improve the training and testing of driving point of the formal learning process, with very few instructors and provide better information for the newly-qualified drivers undertaking further learning. public on their qualifications and performance; and / develop a wider range of opportunities for drivers to acquire skills and demonstrate that they have done so, both before and after they qualify, creating a culture of lifelong learning and driver development. www.dsa.gov.uk/learningtodrive 5 7. We believe that this approach will make people OUR PROPOSALS: STEP 1 – AN IMPROVED safer and better drivers. We expect to see as a result: DRIVING TEST / lower numbers of accidents among 10. We have already started research into a newly-qualified drivers; comprehensive guide to what makes drivers safe. / higher levels of learner satisfaction that they have We will use this as the basis for modernising the acquired the skills needed to drive safely; learning process. We need a test that is thorough / more opportunities and greater incentives and consistent, which covers all elements of for post-test learning, with this becoming safe driving. increasingly common; 11. We will update the theory test so that it does more / higher levels of employer confidence in the driving to test understanding of safe driving. The existing test and driving qualifications; and multiple-choice format can be strengthened by / lower insurance costs for drivers who have taken adding more detailed case studies, which probe a advantage of a wider range of learning options, candidate’s knowledge more thoroughly. We also both pre- and post-test, to improve their competence. want to consult on whether we should continue to make the theory test question bank publicly available. 8. In developing our approach, we have considered a range of other options. In particular, we have 12. The hazard perception test could do more to looked at the merits of limiting the way learners ensure learners have appropriate hazard can learn, or placing restrictions on drivers who perception skills and help learners to develop those have just passed their test.