Consultation outcome

Improving moped and motorcycle training

Updated 19 December 2017

Applies to England, Scotland and Wales

1. Foreword

1.1 Purpose

The main aim of this consultation is to seek your views on how we can improve and update motorcycle training.

We have set out a number of proposals relating to motorcycle training courses and the qualification and quality assurance process for instructors of those courses.

We have also included plans on how we could update the administration of the motorcycle training scheme and encourage more realistic training for new riders.

This consultation also contains suggestions on how we could implement a scheme to enable riders to upgrade their motorcycle driving licence entitlements to allow them to drive larger and more powerful motorcycles by training rather than the traditional practical test process.

We can’t take this project forward on our own, which is why we need to hear your ideas and suggestions on how we can improve motorcycle training and make motorcycling safer for all road users.

1.2 Background

Great Britain has made a lot of progress over the last 20 years in improving road safety, but although motorcycling casualties have fallen substantially over the long term we cannot afford to relax our efforts to reduce road casualties.

1,763 motorcyclists lost their lives on our roads in the last 5 years

In the last 5 years 1,763 motorcyclists lost their lives on our roads, many of them young people, and the accident rate by distance travelled has hardly changed over that period.

Road Safety Statement

Motorcycle safety is a key focus in the Road Safety Statement published by the Department for Transport (DfT) in December 2015 and in the Driver and Vehicle Standards Agency (DVSA) business plan for 2016 to 2017.

The Road Safety Statement sets out the government’s vision, values and priorities for improving the safety of Great Britain’s roads and commits to strengthening compulsory basic training (CBT) and consulting on a ‘range of further proposals to support safer motorcycling’.

Format of motorcycle training

The format of basic motorcycle training for learner riders known as CBT and the training for those wishing to ride a larger more powerful machine, known as direct access scheme (DAS) training has remained largely unchanged since their introduction in the 1990s.

The Road Traffic Act 1988 requires provisional licence holders to successfully complete an approved training course (a CBT course) before they are permitted to ride a motorcycle or moped unaccompanied on the road.

The certificate issued on completion of CBT is valid for 2 years and allows the learner rider to ride a moped or small (A1) motorcycle unaccompanied.

The purpose of the 2 year validity period is to give learners some experience on the road and time to undertake further training prior to taking their full test. To continue to ride after the 2 year period, the rider must either pass a motorcycle test or undertake another CBT.

The Motor Vehicles (Driving Licences) Regulations 1999 set out the requirements of the CBT course and how the instructors delivering the training are authorised to do so.

Approved training bodies

An approved training body (ATB) is authorised by the Secretary of State to provide approved training courses, CBT and DAS.

When authority is granted to an ATB they are responsible for all regulated training provided by the ATB. They are also responsible for the activity and training provided by all instructors who are registered on behalf that ATB.

Instructor qualification

There are currently 3 stages or levels of instructor qualification:

• a down-trained CBT instructor; instructors who have been trained and authorised by the approved training body to conduct CBT courses on their behalf - these instructors are only able to provide training on behalf of the ATB that certified them and only on mopeds or light (A1) motorcycles
• a certified CBT instructor; instructors who have passed the CBT instructor assessment carried out by DVSA - these instructors are qualified to deliver CBT and to down-train other instructors - they may only provide training on mopeds or light (A1) motorcycles
• a DAS instructor; these instructors have passed the CBT instructor assessment above and have also passed an assessment to qualify as a DAS instructor - they may provide training on all categories of motorcycle, A1, A2 and unrestricted category A

In 2014 DfT and DVSA commissioned independent research about CBT and how it could be improved. This led to a public consultation in 2015, where we sought views on proposals to modernise CBT and improve motorcycle safety.

Quality assurance and standards

All instructors who deliver CBT courses undergo quality checking, known as a standards check, at least once during their 4 year period of registration as an instructor. This is carried out by DVSA examiners.

In January 2016 we revised this standards check which now focusses on how the training is carried out, as well as ensuring the CBT syllabus is followed.

We have also increased our unannounced quality assurance visits and adopted a more focussed, intelligence driven approach to these unannounced inspections.

Improvements made so far

We have improved our website content about CBT to help riders prepare better for their CBT course; and have made changes to the CBT certificate to show when a CBT course has been taken on an automatic motorcycle, with a recommendation that the rider should take further training if they wish to ride a geared motorcycle. Currently riders who complete CBT on an automatic machine are allowed to ride geared motorcycles.

Making further improvements

We want to build on the changes that have already been introduced and to further improve motorcycle safety.

We are considering measures that will include:

• a training option for candidates to upgrade their motorcycle licence entitlement
• exploring options for a digital platform to support the administration of the CBT and DAS training schemes
• a revision to the trainer qualification arrangements

These proposals also include implementing a better compliance and quality assurance regime for the motorcycle training industry.

We believe these measures would improve motorcycle road safety and promote best practice in the training industry.

Where these proposals apply

The proposals in this consultation only apply to Great Britain. Motorcycle training and testing is devolved in Northern Ireland.

Leaving the EU is not expected to have a material effect on the proposals.

1.3 Why is government intervention necessary?

The road safety record of Great Britain is one of the best in the world but there is still more that could be done to make our roads safer for motorcyclists. The latest statistics published show that motorcyclists accounted for 21% of fatalities, that’s 365 people, despite representing only 1% of vehicle traffic.

21% of fatalities were motorcyclists, despite representing only 1% of vehicle traffic

We believe that the risks motorcyclists face on the road could be reduced by more realistic and individually tailored training, delivered by better qualified instructors.

In 2016 there were around 2,500 instructors who issued 190,800 CBT certificates to motorcycle and moped riders.

We also consider that the qualification process for motorcycle instructors should be updated, to reflect the needs of the training industry and to improve training standards.

These proposals were broadly supported in the consultation that DVSA published on 10 March 2015.

The format for CBT courses and the qualification process for instructors are set out in legislation which is why government intervention to amend that legislation is necessary. Many of the other proposals in this consultation will also require amendments to legislation.

2. Executive summary

2.1 Introduction

This consultation sets out proposals to amend legislation that will help transform the quality, standards and learning syllabus for motorcycle training.

This consultation builds on the responses given and views expressed on the DVSA consultation modernising compulsory basic training (CBT) for motorcyclists (published March 2015) and the response to consultation report (published July 2015).

2.2 The proposals

Update the qualification arrangements for motorcycle instructors

Update the qualification arrangements for motorcycle instructors by:

• amalgamating the CBT/DAS trainer qualification into one assessment.
• requiring down-trained instructors to successfully complete an assessment course within a specified period of being down-trained if they wish to continue to deliver CBT tuition.
• introducing a new assessment for those instructors who wish to down-train other instructors

Update the content and structure of the CBT syllabus

Update the syllabus to reflect the national standard for riding mopeds and motorcycles, by including:

• steering as a specific skill to be taught in the theory and practical elements of the course
• filtering in the theory element of the syllabus
• the requirement for instructors to ensure trainees are appropriately dressed for CBT

Combine the current 5 modules to 4, these would be:

• element A - eyesight test / aims of CBT and the importance of having the right equipment
• element B - practical on-site training
• element C - motorcycle theory
• element D - on-road practical riding

Strengthen the quality assurance scheme for motorcycle instructors

Strengthen the quality assurance regime for motorcycle instructors to broaden the scope of the training that is quality assured.

This would also support the introduction of a licence upgrade training course, which would require that training to be quality assured.

Introduce a licence upgrade training course

Introduce an option which would allow riders who have passed an initial practical motorcycle test, to upgrade their licence entitlement (to enable them to ride larger or more powerful motorcycles) by successfully completing an approved training course, instead of taking additional practical tests.

This process is often referred to as ‘progressive access’ training.

Restrict learner riders to automatic motorcycles if used for CBT

Introduce measures to restrict provisional licence holders to automatic motorcycles, when CBT is undertaken on an automatic model.

Revocation of CBT certificate

Introduce powers to enable the Secretary of State to revoke a CBT certificate that has been issued to a provisional licence holder who has accrued 6 or more penalty points, within 2 years of the CBT certificate being granted.

Clarify the process for revoking CBT certificates issued by mistake or obtained fraudulently.

A digital platform for the CBT administrative process

Explore options to move the administration of CBT from its current paper-based system, to a digital platform.

Theory test before CBT

Explore the benefits and impacts of novice riders taking a theory test prior to, or as part of, their CBT course.

Earned recognition

We’d like to consider the benefits of an ‘earned recognition’ scheme, to recognise the ATBs whose instructors achieve consistently high standards.

Before we can consider introducing such a scheme, we need to identify the criteria for gaining earned recognition and the benefits that could be made available to instructors who gain earned recognition; for example, by highlighting them on the ‘Find a moped or motorcycle CBT course’ service on GOV.UK.

3. How to respond

The consultation period runs from 30 December 2016 to 11:45pm on 17 February 2017.

Fill in the online response form

When responding, please state whether you are responding as an individual or representing the views of an organisation. If responding on behalf of a larger organisation, please make it clear who the organisation represents and, where applicable, how the views of members were assembled.

If you have queries about this consultation, please email learning2ride@dvsa.gov.uk.

Freedom of Information

Information provided in response to this consultation, including personal information, may be subject to publication or disclosure in accordance with the Freedom of Information Act 2000 (FOIA) or the Environmental Information Regulations 2004.

If you want information that you provide to be treated as confidential, please be aware that, under the FOIA, there is a statutory Code of Practice with which public authorities must comply and which deals, amongst other things, with obligations of confidence.

In view of this it would be helpful if you could explain to us why you regard the information you have provided as confidential. If we receive a request for disclosure of the information, we will take full account of your explanation, but we cannot give an assurance that confidentiality can be maintained in all circumstances. An automatic confidentiality disclaimer generated by your IT system will not, of itself, be regarded as binding on the department.

The department will process your personal data in accordance with the Data Protection Act (DPA) and in the majority of circumstances this will mean that your personal data will not be disclosed to third parties.

4. The proposals

4.1 Update the qualification arrangements for motorcycle instructors

The proposal to change the qualification arrangements for instructors was initially set out in the DVSA consultation on modernising CBT for motorcyclists (published March 2015) and the response to the consultation report (published July 2015).

Current CBT assessment

At present all CBT qualification assessments for instructors are carried out at Cardington, near Bedford, and each assessment lasts for 2 days.

The current system allows for instructors assessed by DVSA to down-train other instructors, which in turn allows those instructors to deliver CBT courses.

This arrangement has been in effect since CBT was introduced in 1990 and has been broadly effective in ensuring there are sufficient instructors to deal with the numbers of candidates who wish to complete CBT.

Current DAS assessment

Since 1996, instructors have been able to qualify to conduct direct access scheme (DAS) training for trainees, which is taken on larger motorcycles.

This is an additional qualification that can only be obtained once an instructor has qualified to conduct CBT courses.

A separate half-day assessment has to be passed by instructors who wish to become qualified to deliver training under the DAS arrangements.

Improving the arrangements

We consider that this is no longer the best arrangement.

Most CBT instructors, both down-trained and certified, want to progress to being DAS qualified but not necessarily to down-train new instructors.

Many of the skills required to teach CBT are relevant to teaching people to ride larger motorcycles. If instructors are required to take another separate assessment to provide DAS training, there is a compliance cost.

We therefore propose to combine the current separate CBT and DAS instructor assessments into one, enabling instructors to attend one assessment course; successful completion will allow them to instruct trainees on all categories of motorcycle.

Existing down-trained instructors

Existing down-trained instructors would retain their current certification and approval to deliver CBT training for a period to be determined following this consultation. This could be until their current instructor certificate expires (certificates are issued for a 4 year period) or for a period of one or 2 years from the date any changes are introduced.

This new combined assessment could readily encompass the licence upgrade training mentioned elsewhere in this consultation.

Combining these assessments will lead to significant financial benefits for instructors and, as delivery of the assessments would become more straightforward, may also enable DVSA to offer regional assessments.

Assessment to down-train instructors

A bespoke half-day assessment will be offered to instructors who wish to down-train other instructors. We plan to provide this assessment locally once arrangements are finalised.

Existing instructors who have passed the current assessment would retain their qualification to down-train other instructors.

Improving arrangements for down-trained instructors

We also propose to amend the arrangements for down-trained instructors.

Down-trained instructors are those who have not attended a DVSA training course but are independently trained and authorised to deliver CBT training by instructors acting on behalf of the ATB, who are qualified to down-train other instructors.

The authorisation is approved by DVSA on behalf of the Secretary of State and the down-trained instructor receives a certificate entitling him or her to be known as a certified instructor and to conduct CBT courses on behalf of an ATB. A down-trained instructor cannot deliver DAS training.

Currently down-trained instructors are able to continue to offer CBT instruction without any other form of qualification as long as their certificate remains valid.

Certificates are valid for 4 years and can be renewed providing the instructor meets the requirements of an approved instructor (these include a fit and proper criteria and meeting the required quality standards).

In the early days of CBT this ensured that there were sufficient instructors available for trainees.

However, there are sufficient CBT instructors today and the drive to improve training standards and to incorporate CBT and DAS instruction make it less desirable for a down-trained instructor to continue to give instruction without any formal qualification process.

Down-trained instructors would continue to be limited to delivering CBT instruction only and would not be authorised to deliver DAS, or other types of training, until they had passed the new instructor assessment.

Therefore, we propose to restrict the approval of down-trained instructors to a set period of time which will be determined by the responses resulting from this consultation.

After this period has expired, instructors would be required to pass a formal assessment to fully qualify in order to continue giving CBT training, passing this assessment would entitle them to provide DAS and other types of training.

Summary

To summarise, we would:

• create a new shorter assessment course combining CBT instructor and DAS assessments and possibly offer those assessments regionally
• create a new assessment for those instructors wishing to down-train other instructors
• restrict the time period that down-trained instructors could give CBT instruction before being required to pass the DVSA assessment

Question 1

Do you agree that we should implement a new combined CBT/DAS instructor qualification assessment?

Question 2

Do you agree that down-trained instructors should have a limited period giving instruction, before being required to undertake a qualification assessment? If so how long should this period be?

Question 3

Do you have any additional ideas or suggestions on how we could improve CBT/DAS instructor qualifications?

4.2 Update the content and structure of the CBT syllabus

The CBT syllabus has remained largely unchanged since it was introduced in 1990. The syllabus is set out in regulations.

When delivered well, CBT is effective in ensuring that new riders are taught the skills and competencies to enable them begin learning to ride on the road and to ride small motorcycles without being accompanied by a qualified trainer.

However we consider it is time to update the syllabus to reflect the demands placed on new riders on today’s busy roads.

The current syllabus has 5 elements, each made up of multiple topic areas. We do not envisage the content of CBT syllabus changing significantly, although would take this opportunity to make some minor revisions.

Merging course elements

We propose merging 2 of the course elements (B and C, practical on-site training and practical on-site riding) into one element. This would enable a more flexible approach to the on-site aspect of delivering the training.

Reflecting the national standard

We have also taken the opportunity to reflect the national standard for riding mopeds and motorcycles in the CBT syllabus by including reference to the trainee being required to ‘know and understand’ rather than ‘be taught’ the different parts of the CBT syllabus. This reflects a more modern approach to client centred learning.

Equipment and clothing

The CBT syllabus includes a module on ‘the importance of having the right equipment and clothing’.

While most motorcycle instructors encourage their pupils to wear the best protective motorcycle gear that they can afford, some candidates aren’t following this advice.

Many ATBs provide basic clothing and equipment as part of their course arrangements.

In 2011 DVSA introduced the requirement for candidates taking their motorcycle practical test to wear suitable clothing and equipment.

We propose to extend this requirement to include trainees undergoing training courses and to require that instructors ensure trainees are appropriately dressed.

Making future changes more flexible

As well as making changes to the syllabus itself we want to be able to make any future changes more flexible by moving the syllabus from one that is defined in legislation to one that is underpinned by providing statutory guidance.

These steps would make it easier for instructors to deliver client-centred learning in line with the current approach to delivering training, and would make it simpler to update the syllabus in the future.

Summary

The current and proposed syllabuses are at annex A. The main changes we are considering are:

• reflecting the national standard for riding mopeds and motorcycles in the syllabus
• 4 elements instead of 5
• the inclusion of steering being taught as a specific skill, both in the theory and practical elements
• the inclusion of filtering in the theory element of the syllabus
• the requirement for instructors to ensure trainees are appropriately dressed for CBT

Question 4

Do you agree that we should make changes to the CBT syllabus?

Question 5

Do you agree that the 5 elements of CBT should be condensed to 4?

Question 6

Do you agree that instructors should ensure trainees are appropriately dressed for CBT?

Question 7

Do you have any additional ideas or suggestions on how we could improve the CBT syllabus?

4.3 Strengthen the quality assurance scheme for instructors

DVSA currently carries out quality assurance and compliance checks on instructors delivering CBT courses.

These are completed by DVSA, on behalf of the Secretary of State, as part of its role in improving road safety by setting standards for motorcyclists and its role in authorising ATBs and motorcycle instructors.

Introducing mandatory quality assurance checks for all instructors

We propose to amend existing regulations to introduce mandatory quality assurance checks for all instructors who provide road based motorcycle instruction.

This would provide greater flexibility for ATBs, instructors who deliver approved training courses and DVSA. It would also provide assurance that all training is being delivered to the required standard.

Failing a standards check

We propose that if an instructor fails a standards check then they may have up to 2 more attempts to reach the required standard.

If they fail to reach the required standard their authorisation to deliver motorcycle training courses would be withdrawn and they would have to re-take the qualification assessment before they could provide training again.

This is to ensure that instructors are clear on the standards expected of them and that the procedures for quality assurance checks are open and transparent.

Question 8

Do you agree to the introduction of mandatory standards checks?

Question 9

Do you agree that all instructors should be subject to mandatory quality assurance?

Question 10

Do you have any suggestions on how we could improve standards checks for instructors overall?

4.4 Introduce a licence upgrade training course

Depending on the rider’s age and experience there are different routes to gaining a full motorcycle licence.

Currently new motorcyclists have 2 options to qualify to ride larger machines.

Those aged 24 and over can qualify directly for the most powerful machines by passing a theory and practical test.

It is also possible for younger motorcyclists to progress in stages to the highest category of machine by progressive access; this means taking a test on a lower category motorcycle and then, after 2 years’ of riding experience, completing another practical test on a higher category.

The main benefits of this route are that riders can progress to the most powerful category of motorcycle by age 21, rather than 24 and are not required to take additional theory tests.

Progressive access without the need to take a further test

European legislation (Directive 2006/126/EC on driving licences) allows Member States to introduce a training option to provide entitlement to ride larger motorcycles by progressive access, without the need to take a further test. This option has strong support from the training industry.

A training option must cover the same elements as the practical test and the course must last for a minimum of 7 hours. We propose to amend existing legislation so that this training option can be introduced in Great Britain.

Who would provide progressive access training

Progressive access training would be provided by ATBs. Individual instructors would be qualified and would provide the training on the ATB’s behalf.

We propose that all existing DAS qualified instructors would be eligible to provide progressive access training.

This scheme will be dependent on the development of a secure, affordable means of updating the DVLA drivers’ record on successful completion of training.

Question 11

Do you agree that DVSA should explore setting up a training option to upgrade motorcycle licence entitlements?

Question 12

How do you see a training option working in practice?

4.5 Restrict learner riders to automatic motorcycles when used for CBT

At present, a learner rider who successfully completes CBT can ride an automatic or manual motorcycle irrespective of the machine they used.

We consider that this has road safety implications, as the skills required to ride a machine with manual transmission differ from those needed for automatic transmission.

Candidates who complete their CBT course on a machine with automatic transmission

We propose to amend existing legislation so that if a candidate completes their CBT course on a machine with automatic transmission, they will be restricted to riding an automatic machine.

This would not affect the ability of a candidate taking their CBT course on a manual vehicle to ride an automatic machine.

Question 13

Do you agree that learners who complete their CBT course on a machine with automatic transmission, should be restricted to riding an automatic machine?

Question 14

How should learner riders with an automatic restriction on their CBT certificate be able to upgrade their entitlement to ride a manual machine?

4.6 Revocation of CBT certificate

We propose that CBT certificates should be revoked if the learner rider has accrued 6 penalty points during the 2 year validity period.

Where a learner rider has their certificate removed because of penalty points, they would be unable to ride until another CBT course had been successfully completed.

This would be consistent with the treatment of new riders who have a full motorcycle licence.

Under the New Drivers Act if a motorcyclist accrues 6 or more penalty points within 2 years of receiving their licence, then the licence is revoked and the rider has to re-apply for their licence and re-sit and pass the theory and practical tests.

Analysis of licence revocation

Licence revocation for novice drivers, under the New Drivers Act, was reviewed by Transport Research Laboratory (TRL) in 2013.

This found that around 10% of novice drivers are caught for committing an offence within their probationary period; and around 2% of drivers have their licence revoked under the New Drivers Act.

Analyses show a reduction in the proportion of drivers with 2 or more offences, a reduction in the number of offences overall and a substantial reduction in the proportion of new drivers with 6 or more points since the introduction of the New Drivers Act.

Therefore, the data overall suggest that the Act may be having a beneficial effect on new drivers’ offending patterns.

We therefore consider that it would be desirable to introduce similar principles for those with a CBT certificate.

Clarifying when a CBT certificate can be revoked

We also intend to amend regulations to clarify the circumstances where a CBT certificate can be revoked. For example, when it has been issued fraudulently.

Question 15

Do you consider that the Secretary of State should have powers to revoke a CBT certificate if the learner rider accrues 6 or more penalty points?

Question 16

Should DVSA consider other measures for learner riders who have accrued 6 penalty points?

4.7 Digital platform for CBT administration

We intend to explore options, in conjunction with DVLA, to move the administration of CBT from its current paper-based system, to a digital platform. Some of the potential benefits would be:

• better customer experience – immediate issue of certificate and update of driver licence records at DVLA
• reminders could be sent out when CBT certificates are due to expire
• the driver licence record could automatically update when the 2 year validity has expired
• it would support enforcement by the police, they would have access to live records
• it would reduce the risk of riders riding whilst un-insured as a consequence of their certificate expiring
• the manual returns that ATBs currently have to complete would be replaced by electronic records
• it would be easier for DVSA to track certificates providing a central database

Question 17

Do you agree that the CBT administration process should be on a digital platform?

4.8 Theory test before CBT

DVSA has created an online quiz for new riders, which requires a basic knowledge of The Highway Code for successful completion.

We have also expanded the information available for new riders on GOV.UK and made it more accessible.

Recent research showed that around half of all learners claimed a fair or high level of understanding of riding motorcycles or mopeds and 40% had read The Highway Code before taking CBT, although these views were not endorsed by the instructors who completed the same survey.

We wish to explore the views of instructors on how we can work together to ensure that learner riders attain an adequate understanding of the rules of the road and the potential hazards that they might encounter, before riding independently.

Two options have been suggested to address this concern although there could be other solutions.

Pass a theory test before CBT

One suggestion is to require all learner riders to pass their motorcycle theory and hazard perception test before taking CBT.

Whilst this would ensure better theoretical knowledge it may put some learner riders off taking CBT and would conflict with what is seen as best training practice where theory and hazard training should be carried out in conjunction with practical training.

Equally it may persuade some learner riders that, having passed their theory and hazard perception test and completing CBT, they are one step closer to completing the training required to take their practical motorcycle test.

This might encourage more learner riders to go on and take the full test, rather than riding as a learner on a CBT certificate.

Theoretical knowledge test by the instructor

Another suggestion is that learners should have their theoretical knowledge tested by the instructor, as part of the CBT course.

This could be achieved by strengthening the theory part of the CBT syllabus to include a requirement to ‘know and understand’ the relevant theory topics in the syllabus.

Completing a short theory test as part of the CBT course, or by validation of training by the instructor could be part of this solution.

We are keen to explore the benefits and impacts of learner riders taking the theory test, before completing CBT.

Question 18

Do you think that learner riders should take a theory test as part of or prior to CBT? If yes what format do you consider the theory test should take?

Question 19

What other measures do you think DVSA could put in place to educate learner riders?

4.9 Earned recognition

We want to explore views on the criterion for gaining earned recognition and how ATBs who are awarded earned recognition could expect to benefit from it.

For example, we may wish to consider that earned recognition ATBs are able to offer training under the DVSA’s post-test enhanced rider scheme. We could also highlight them on the ‘find a moped or motorcycle CBT course’ service on GOV.UK.

Question 20

Do you agree with the principle of earned recognition?

Question 21

What evidence do you consider that instructors should provide to gain earned recognition?

Question 22

What benefits do you feel DVSA could offer to encourage instructors to gain earned recognition?

5. Consultation questions

1. Do you agree that we should implement a new combined CBT/DAS instructor qualification assessment?
2. Do you agree that down-trained instructors should have a limited period giving instruction, before being required to undertake a qualification assessment? If so how long should this period be?
3. Do you have any additional ideas or suggestions on how we could improve CBT/DAS instructor qualifications?
4. Do you agree that we should make changes to the CBT syllabus?
5. Do you agree that the 5 elements of CBT should be condensed to 4?
6. Do you agree that instructors should ensure trainees are appropriately dressed for CBT?
7. Do you have any additional ideas or suggestions on how we could improve the CBT syllabus?
8. Do you agree to the introduction of mandatory standards checks?
9. Do you agree that all types of instruction should be subject to mandatory quality assurance?
10. Do you have any suggestions on how we could improve standards checks for instructors overall?
11. Do you agree that DVSA should explore setting up a training option to upgrade motorcycle licence entitlements?
12. How do you see a training option working in practice?
13. Do you agree that learners who complete their CBT course on a machine with automatic transmission, should be restricted to riding an automatic machine?
14. How should learner riders with an automatic restriction on their CBT certificate be able to upgrade their entitlement to ride a manual machine?
15. Do you consider that the Secretary of State should have powers to revoke a CBT certificate if the learner rider accrues 6 or more penalty points?
16. Should DVSA consider other measures for learner riders who have accrued 6 penalty points?
17. Do you agree that the CBT administration process should be on a digital platform?
18. Do you think that learner riders should take a theory test as part of or prior to CBT? If yes what format do you consider the theory test should take?
19. What other measures do you think DVSA could put in place to educate new riders?
20. Do you agree with the principle of earned recognition?
21. What evidence do you consider that instructors should provide to gain earned recognition?
22. What benefits do you feel DVSA could offer to encourage instructors to gain earned recognition?

6. What will happen next

A summary of responses, including the next steps, will be published within 3 months of the consultation closing on 17 February 2017.

Paper copies will be available on request.

7. Question and answer brief

Below is a list of frequently asked questions about these proposals.

1. Why does DVSA want to combine the CBT/DAS assessments?

The 2 current training assessments have been in place for a long time and need to be updated. We consider that having separate assessments is unwieldy and leads to unnecessary duplication of effort. Combining the assessments would lessen the burden on the industry.

2. Why should down-trained instructors have to lose their status after a certain period has elapsed?

Research carried out as part of the revision of the CBT standards check showed the level of training amongst down-trained instructors is inconsistent. Having a formal qualifying process will help address this issue and ensure that the training received is of a uniform quality.

3. Why bother with a licence upgrade training option, won’t this be too expensive to implement?

There are a number of issues around offering a training option but DVSA believes that some riders would find training for a licence entitlement more beneficial than the traditional testing route. However a secure and affordable method of updating the riders DVLA record would need to be developed in order to enable this option.

4. Why do you want to introduce standards checks on different types of training?

DVSA already carries out standards checks on CBT but we want to step up to a new regime which will provide better and more consistent quality assurance for all types of road based motorcycle training.

5. Why restrict candidates to a certain type of machine after they have completed CBT?

DVSA believes that the skills required to ride an automatic machine are different to those necessary for a manual machine. Restricting access will help improve the safety of learner riders’ on the road and is consistent with our tailored training approach.

Annex A: CBT syllabuses

Current syllabus

The current syallabus is set out in The Motor Vehicles (Driving Licences) Regulations 1999: Schedule 12 - elements of an approved training course and the CBT syllabus and guidance notes

A. Introduction

1) Trainees must be told and must understand:

• the aims of the approved training course
• the importance of having the right equipment and clothing

2) Trainees’ eyesight must be tested. Trainees must be able to read, in good daylight, a vehicle registration mark containing letters and figures 79.4 mm high at a distance of 20.5 metres (with the aid of glasses or contact lenses if worn).

B. Practical on-site training

Trainees must receive practical on site training at the conclusion of which they must fulfil the following requirements, that is to say they must:

• be familiar with the motor cycle, its controls and how it works
• be able to carry out basic machine checks to a satisfactory standard and (except in a case where the course is to be completed on a motor bicycle and side-car combination or a 3-wheeled moped) be able to take the bike on and off the stand satisfactorily
• be able to wheel the machine around to the left and right showing proper balance and bring the motorcycle to a controlled halt by braking
• be able to start and stop the engine satisfactorily

C. Practical on-site riding

Trainees must undertake practical on site riding at the conclusion of which they must be able to:

• ride the machine under control in a straight line and bring the machine to a controlled halt
• ride the machine round a ‘figure of 8’ circuit under control
• ride the machine slowly under control
• carry out a U-turn manoeuvre satisfactorily
• bring the machine to a stop under full control as in an emergency
• carry out controlled braking using both brakes
• change gear satisfactorily
• carry out rear observation correctly
• carry out simulated left and right hand turns correctly using the Observation-Signal-Manoeuvre (OSM) and Position-Speed-Look (PSL) routines

D. Practical on road training

1) Before undertaking practical on road riding trainees must be instructed in the matters set out in paragraphs 2 and 3 below and achieve the objectives mentioned therein.

2) Trainees must understand the following:

• the need to be clearly visible to other road users (the use of conspicuity aids)
• the importance of knowing the legal requirements for riding on the road
• why motor cyclists are more vulnerable than most road users
• the need to drive at the correct speed according to road and traffic conditions
• the importance of knowing The Highway Code
• the need to ride defensively and anticipate the actions of other road users
• the need to use rear observation at appropriate times
• the need to assume the correct road position when riding
• the need to leave sufficient space when following another vehicle
• the need to pay due regard to the effect of varying weather conditions when riding

3) Trainees must be aware of:

• the effect on a vehicle of the various types of road surface that can be encountered
• the dangers of drug and alcohol use
• the consequences of aggressive attitudes when riding
• the importance of hazard perception

E. Practical on-road riding

1) Trainees must undertake on road riding for a period of not less than 2 hours. They must (subject to paragraph 2 below) encounter all the following traffic situations and demonstrate their ability to handle each one competently and safely:

• roundabouts
• junctions
• pedestrian crossings
• traffic lights
• gradients
• bends
• obstructions

2) Upon application being made by an approved training body for the purpose, the Secretary of State may excuse that body from compliance with a requirement mentioned in paragraph 1 above in respect of practical on-road instruction conducted from premises where the training body provides courses if, having regard to the location of those premises, he is satisfied that it is impractical to comply with that requirement.

3) Trainees must also repeat the following exercises in normal road conditions:

• carry out a U-turn manoeuvre satisfactorily
• bring the machine to a stop under full control as in an emergency

Proposed CBT syllabus

A. Eyesight, aims and equipment

1) Trainees must know and understand the following:

• the aims of the approved training course
• the importance wearing the right equipment and clothing. Instructors must ensure trainees are appropriately dressed for CBT

2) Trainees’ eyesight must be tested. Trainees must be able to read, in good daylight, a vehicle registration mark containing letters and figures 79.4 mm high at a distance of 20.5 metres (with the aid of glasses or contact lenses if worn).

B. Practical on-site training

Trainees must receive practical on-site training, at the end of this element they must know and understand the following:

• introduction to the machine, understand how the motorcycle and its controls work
• how to make routine checks of machines road worthiness
• how to take the bike on and off the stand(s) safely
• how to wheel the machine around to the left and right showing proper balance and bring the motorcycle to a controlled halt by braking
• how to start and stop the engine safely

Trainees must complete the following exercises:

• ride the machine under control in a straight line and bring the machine to a controlled halt
• ride the machine slowly under control
• carry out controlled braking using both brakes
• carry out steering control exercises. (Understand the principle of slow and higher speed steering)
• ride the machine round a ‘figure of 8’ circuit under control
• change gear satisfactorily
• carry out a U-turn manoeuvre satisfactorily
• bring the machine to a stop under full control as in an emergency
• carry out rear observation correctly
• carry out simulated left and right hand turns correctly using the Observation-Signal-Manoeuvre (OSM) and Position-Speed-Look (PSL) routines

C. Motorcycle theory training

1) Before undertaking practical on-road riding trainees must know and understand the following:

• the legal requirements for riding on the road
• steering techniques for slow manoeuvres and higher speed cornering
• importance of taking rear observation at appropriate times
• how to use the road in accordance with The Highway Code, including how to negotiate different types of junctions, roundabouts and crossings safely
• hazard perception - the need to ride defensively and anticipate the actions of other road users
• filtering – How to filter in a safe and responsible manner
• why motorcyclists are more vulnerable than most road users; to include:
  • conspicuity and visibility to others
  • riding position
  • weather conditions
  • riding on various types of road surface
  • consequences of aggressive attitudes when riding
• speed awareness, and being able to ride at a speed according to road and traffic conditions
• the need to leave sufficient space when following another vehicle
• trainees must be aware of: the dangers of drug and alcohol use and how it may impair riding

D. Practical on-road riding

1) Trainees must undertake on road riding for a period of not less than 2 hours. They must (subject to paragraph 2 below) encounter all the following traffic situations and demonstrate their ability to handle each one competently and safely:

• roundabouts
• junctions
• pedestrian crossings
• traffic lights
• gradients
• cornering and bends
• obstructions

Trainees must also repeat the following exercises in normal road conditions:

• carry out a U-turn manoeuvre satisfactorily
• bring the machine to a stop under full control as in an emergency

2) Upon application being made by an approved training body for the purpose, the Secretary of State may excuse that body from compliance with a requirement mentioned in paragraph 1 above in respect of practical on-road instruction conducted from premises where the training body provides courses if, having regard to the location of those premises, he is satisfied that it is impractical to comply with that requirement.

Annex B: Consultation principles

The consultation is being conducted in line with the government’s consultation principles.

A. Consultations should be clear and concise
B. Consultations should have a purpose
C. Consultations should be informative
D. Consultations are only part of a process of engagement
E. Consultations should last for a proportionate amount of time
F. Consultations should be targeted
G. Consultations should take account of the groups being consulted
H. Consultations should be agreed before publication
I. Consultation should facilitate scrutiny
J. Government responses to consultations should be published in a timely fashion
K. Consultation exercises should not generally be launched during local or national election periods

If you have any comments about the consultation process please contact:

Consultation Co-ordinator
Department for Transport
Zone 1/29 Great Minster House
London SW1P 4DR

Email consultation@dft.gsi.gov.uk

Please do not send consultation responses to this address.