Open consultation

Introducing a minimum learning period for learner drivers (category B driving licence)

Published 7 January 2026

The Department for Transport (DfT) is seeking views on introducing a minimum time period between passing a theory test and taking a practical driving test. Our consultation covers driving tests taken for a category B licence, the standard licence used to operate a car.

We also welcome views on:

• introducing a minimum number of supervised practical driving hours
• creating a mandated learning syllabus
• the ways that any required learning could be conducted

This consultation does not present a preferred option, allowing stakeholders to provide views on a variety of potential approaches.

Foreword

Road safety is fundamental to everything this government stands for. Safer roads underpin our national missions of:

• driving economic growth
• enabling greener journeys through active travel
• easing pressure on the NHS
• ensuring that everyone can travel safely

The safety of all road users is a key priority for this government. We have some of the safest roads in the world, but we cannot be complacent. In 2024, 273 people were killed in collisions involving young car drivers aged 17 to 24 years old.

As the minister responsible for the safety of our roads, and as a parent, I know we want to get the balance right for our young and novice drivers. Learning to drive is a huge moment in a young person’s life. It’s about more than just getting from A to B, it’s about freedom and new opportunities. But with that freedom comes responsibility. This government wants to support young people’s access to work and education, while also keeping them safe on the roads.

This is why we are consulting on the introduction of pre-test measures and combining these with the robust post-test measures already in place. These post-test measures come in the form of a probationary period of 2 years for all novice drivers. Additionally, we are considering further post-test measures as part of the motoring offences consultation, where views are being sought on a lower blood alcohol limit for novice drivers in England and Wales. 

We are launching this consultation to explore introducing further mandatory requirements for learner drivers before they can take a practical car driving test. This would provide learners more time to build competence and experience before taking their test.

This consultation is seeking views on potentially introducing the biggest change to the learning to drive journey since the introduction of the driving test 90 years ago, because we recognise that in terms of population and in the number of miles driven, 17 to 24-year-olds remain one of the highest fatality risk groups. 

Having met with the families and friends of some of those who have been killed or seriously injured, I have some sense of the devastation fatal and serious collisions can have on their lives.

I have been hugely impressed with the vigour that members of Forget-Me-Not-Families Uniting group and other campaigners have put into campaigning on the issue of protections for younger drivers. I admire their courage, their dedication to road safety and their determination to ensure other families do not face the same grief. I am pleased to be able to launch this consultation as it reflects some of the issues that they have raised with us in government.

The goal of learning to drive extends far beyond simply passing a test, it is about equipping young and novice drivers with the skills, competence and responsibility to stay safe for life. Introducing a minimum learning period would provide a more structured and supportive pathway, allowing learners to gain essential experience before driving independently.

This consultation invites views from learner drivers, novice drivers, parents and guardians of learner and novice drivers, road safety campaigners, academics and others with an interest in improving road safety. Your views will help shape one of the most significant reforms to the learning-to-drive journey and licensing since its conception, ensuring that young and novice drivers are not only prepared for the test, but for the realities of driving safely every day.

Lilian Greenwood MP Minister for Local Transport

Introduction

Road collisions place a significant burden on the NHS. In 2024, it is estimated that collisions resulted in £3 billion medical and ambulance costs to the NHS (see data table RAS4001). There will also be ongoing care costs for those with life-changing injuries. Road collisions also have a huge impact on the economy. In 2024, the lost output due to collisions was an estimated £6.9 billion. That is, people who would have been able to work and contribute to society but cannot due to the impact of a road collision. 

Having a driving licence enables people to access employment, education and leisure. This contributes to the government’s mission to support sustainable economic growth and remove barriers to opportunities.

Learning to drive is one of the most important milestones in a young person’s life. It represents independence, responsibility and freedom. But with that freedom comes risk, especially when the learning process is rushed. Rushing the learning process can leave young drivers unprepared for real-world conditions.

Driving is a complex process that requires not just the mastery of vehicle control but also good judgement, decision-making and hazard perception skills. That’s why we’re launching a consultation to explore introducing a minimum learning period, a structured approach that gives learners more time to build competence and experience before taking their test. Without enough time behind the wheel, many young learners are faced with situations and conditions on the road that they have no experience with, due to a lack of driving practice.

Introducing a minimum learning period

By minimum learning period (MLP), we mean any combination of the following policy measures that will mandate a minimum requirement for being able to take a driving test:

• a minimum time learning period, which outlines a minimum number of months that learners must be in the learner stage
• a minimum number of supervised hours, which outlines a minimum number of required supervised practical driving hours
• a logbook to record learning
• a structured learning syllabus, which mandates requirements for learners to have practical experience learning to drive in a range of different circumstances

In Great Britain (GB), we already have a form of restricting novice drivers, irrespective of age, after they pass their first driving test. After acquiring their first full licence, a novice driver is on ‘probation’ for 2 years. During this time, they are subject to a limit of 5 penalty points received for any driving offences – including any received when in the learning stage. If 6 or more points are received, then a driver’s licence is automatically revoked and they must apply again for a provisional licence, re-entering the learning stage. In addition, they must pass both theory and practical driving tests again to get a full licence.

We want to look at what more can be done pre-test. The introduction of a minimum learning period will work in conjunction with the existing post-test restriction to provide a structured system for young and novice drivers as they start their journey to becoming safe and responsible drivers for life.

The case for interventions for learner drivers

DfT previously commissioned trials of voluntary interventions for young learner and novice drivers under the Driver2020 project. No impact was detected on self-reported collisions in the first 12 months of driving amongst any of the 5 intervention groups (including all participants who engaged and did not engage with the interventions) compared to the control group. Additionally, there were very low levels of uptake of the measures by learner and novice drivers in the intervention groups, which meant sample sizes (of those who engaged with the interventions) were too small to measure the impact on collisions.

The very low levels of uptake of the voluntary measures indicate the limitations of voluntary measures for young novice drivers. Given that the majority of each intervention group chose not to engage with the voluntary measure offered to them, this points to a need for mandatory measures. Even if the interventions were found to be effective at reducing collisions for those who engaged, there would be limited effectiveness at the population level due to the very low levels of engagement. For these reasons, we are now exploring introducing additional mandatory requirements to improve young and novice driver safety.

We want to ensure our young and novice drivers are well prepared before being able to drive independently on our roads and that is why we are consulting on what measures to include in an MLP. International evidence suggests introducing an MLP could improve the safety of our roads.

Research shows that countries that have introduced MLPs, sometimes in combination with minimum supervised hours, have lowered collision rates among young novice drivers^{[footnote 1] [footnote 2] [footnote 3] [footnote 4]}. This may be because an MLP helps to ensure that drivers don’t just develop sufficient skills to pass the driving test but also gain pre-test practice in varied driving conditions so that they are better prepared for real-world driving scenarios.

An MLP for young and novice drivers is designed to improve road safety while being proportionate. A structured MLP would give young and novice drivers time to build skills in real-world driving conditions. It could allow them to experience different weather conditions, traffic patterns and road types under the guidance of a more experienced driver or instructor. These are competencies that take time, repetition and reflection. 

MPs, stakeholders, the motor insurance sector and campaigners have called for the introduction of restrictions on young and novice drivers. The government is taking action and that is why we are publishing this consultation that looks in detail at whether the introduction of an MLP for young and novice drivers would work in Great Britain. 

However, the government does not seek to impose measures on drivers without considering the negative as well as the positive impacts. We acknowledge concerns around the feasibility of implementing additional pre-test requirements for young and novice drivers in Great Britain. Particularly those in certain types of employment, those who have carers’ responsibilities, those with disabilities and drivers who have foreign licences valid for 12 months after becoming resident in GB. This is a complex area, and while we have some proposals contained within this consultation that we are seeking views on, there are no simple solutions. 

Cost of insurance

The government wants to support drivers and committed in its manifesto to tackle the high costs of motor insurance. To deliver on this commitment, we formed a cross-government taskforce on motor insurance, co-chaired by the Department for Transport (DfT) and His Majesty’s Treasury (HMT).

However, it is important to explain that motor insurers are responsible for setting the terms and conditions of the policies that they offer, and it is for them to decide the level of risk that they take in issuing any policy to a given applicant.

Motor insurance premiums are set according to the risks associated with a given applicant. As part of that assessment, insurers take into account:

• the age and experience of the applicant
• the applicant’s record of claims
• the type of vehicle that will be driven

If the number of collisions involving young and novice drivers decreases overall, this may contribute to a reduction in insurance premiums for younger drivers.

Background to the consultation

In this consultation, we are only referring to licences in category B, which are cars and other 4-wheeled vehicles up to 3,500kg. We are not proposing an MLP period for motorcyclists (which includes motor tricycles) in category A.

We will publish a separate consultation on motorcycle training, testing and category A licensing (AM, A1, A2 and Full A). Drivers of lorries, buses and coaches in categories C and D are covered by a separate licensing regime which has its own qualification pathway.

In Great Britain, young drivers between 17 and 24 account for 6% of driving licence holders but were involved in 24% of fatal and serious collisions in 2024. The latest statistics show that the number of car fatalities involving 17 to 24-year-olds on Britain’s roads is falling and we have seen a drop in the number of 17 to 24-year-olds killed:

• 448 in 1990
• 158 in 2010
• 73 in 2024 – an 84% total decrease since 1990

However, 17 to 24-year-olds remain one of the highest fatality risk groups, especially males, both as car drivers and passengers.

Statistics on novice drivers are not available, as details of drivers in collisions are not linked to the Driver and Vehicle Licensing Agency (DVLA) records for statistical purposes.  

Chart 1: Killed or seriously injured (KSI) car occupant casualties: Great Britain, 2024

Age	Car drivers	Car passengers
17 to 24	1,376	1,077
25 to 29	828	297
30 to 35	833	312
36 to 40	666	177
41 to 45	622	140
46 to 50	499	127
51 to 55	543	123
56 to 60	520	134
61 to 65	458	133
66 to 70	350	119
71 to 75	370	137
76 to 80	350	154
81 to 85	257	125
86 and over	183	95

Source: based on data from STATS19 (DfT)

Chart 2: Killed or seriously injured (KSI) car occupant casualties per billion miles travelled: Great Britain, 2024

Age	Car drivers	Car passengers
17 to 24	127.1218	93.90858
25 to 29	60.19067	42.12076
30 to 35	38.53269	42.4685
36 to 40	33.91897	31.45184
41 to 45	31.10455	28.5804
46 to 50	25.58944	27.98182
51 to 55	24.87289	25.70345
56 to 60	24.18316	24.96126
61 to 65	27.81431	22.64338
66 to 70	28.89666	22.9526
71 to 75	42.70636	29.87017
76 to 80	53.80216	45.04888
81 to 85	102.8863	91.97149
86 and over	169.4854	66.74818

Source: based on data from STATS19 (DfT), National Travel Survey (DfT) and population estimates (Office of National Statistics (ONS))

Young drivers, particularly teenagers, are statistically more likely to be involved in collisions compared to older, generally more experienced drivers. That is why insurance companies use age as a factor in determining risk, leading to higher premiums for young and novice drivers.

The human brain, particularly the frontal lobe, which is heavily involved in decision-making and risk assessment, continues to develop into the mid-20s. Executive function is associated with the frontal lobe and is a term used to describe a set of processes that enable us to regulate thoughts and behaviour. These processes include inhibition, working memory and set shifting, which is the ability to switch between or modify tasks. Development of the frontal lobe and executive functioning continues until early adulthood.

Evidence suggests that young drivers with inefficient executive function:

• make more errors
• engage in more dangerous driving behaviours
• are at a higher risk of collisions^{[footnote 5]}
• are more likely to be distracted while driving^{[footnote 6]}

For these reasons, we are particularly concerned with introducing measures to improve safety for young novice drivers.

However, evidence also suggests that novice drivers of all ages are at increased risk of collisions due to a lack of driving experience^{[footnote 7]}. For this reason, we are open to considering introducing measures to improve safety for all novice drivers. 

Driving requires a number of skills, including vehicle control, hazard perception and decision-making and learners can benefit from experiencing different driving conditions, such as driving in the dark, adverse weather and heavy traffic. An MLP could provide drivers with more time to develop these skills and experience.  

Currently, a learner driver may apply for a practical driving test as soon as they acquire a provisional licence and pass the theory test. We are consulting on introducing a minimum time period between passing a theory test and being able to take a practical driving test. We also welcome views on introducing a minimum number of hours, a mandated learning syllabus and how this learning can be conducted.

An MLP enables learner drivers to be better prepared and could mean they are more likely to pass their test. It can also result in learners undertaking more supervised driving experience, either through professional lessons and/or private practice, before taking their practical driving test. More than just a safety measure, an MLP can allow drivers to build competence. With more practice, young and novice drivers should feel more in control, less anxious, and better equipped to face challenges.

Current licensing requirements

Driver licensing is a reserved matter in respect of Wales and Scotland (but not Northern Ireland), so any licensing changes that are brought forward would apply to England, Scotland and Wales.

In Great Britain, people can apply for a provisional driving licence 3 months before they are eligible to drive or ride on the road. The minimum age to start driving a car is 17 and learners can take lessons with an approved driving instructor or an eligible supervising driver. Learner drivers must pass a theory test before they can book and take a driving test. The theory test is then valid for 2 years, so a practical test must be completed within this time.

Currently, there is no mandatory minimum period of time and/or number of hours that must elapse between starting to learn to drive, passing a theory test and taking a practical driving test for a category B driving licence. This may lead to drivers sitting practical tests before they have had enough driving experience, which could negatively impact driving skills and competence and potentially lead to lower pass rates. 

Several studies of novice drivers who have passed their driving tests have asked about the number of hours spent learning. The mean number of hours spent learning to drive reported by novice drivers in these studies ranged from 37 to 52 hours with a driving instructor and from 13 to 20 hours practising with family and friends^{[footnote 8] [footnote 9] [footnote 10]}. However, there is likely to be a large variation in the actual number of hours that individuals included in each of these studies spent learning.

Exemptions to the age limits can be made in specific circumstances and The Motor Vehicles (Driving Licences) Regulations 1999 (as amended) states that a person aged 16 may hold a provisional licence and take their theory and practical driving test if they are in receipt of a qualifying disability benefit. The law makes a specific exception to promote equal opportunity and independence for disabled people.

Greater mobility is essential for people with disabilities, and learning to drive early supports independence, access to education, training, and work and reduces reliance on carers or public transport. There are no current plans to change this exemption.

Foreign driving licence holders resident in Great Britain

The holder of a foreign licence may drive in Great Britain for up to 12 months after becoming resident. EU licence holders can drive in Great Britain for as long as their licence remains valid. After 12 months of residency, holders of exchangeable licences may exchange their foreign licence for a GB licence to continue driving. Holders of non-exchangeable licences must pass a GB driving test and obtain a GB licence to continue driving after the initial 12-month period.

Driving licence revocation, disqualifications and potential MLP impacts

Under British road traffic legislation, an individual’s driving licence can be withdrawn for a number of reasons. Some examples of these reasons are included in the following paragraphs.

The Road Traffic (New Drivers) Act 1995 (known as the New Drivers Act or NDA) came into force on 1 June 1997 and, as a result, new drivers, irrespective of age, must serve a probationary period of 2 years when they become a qualified driver. For the purpose of the NDA, a person becomes a qualified driver on the first occasion when they pass a driving test in the United Kingdom, a European Economic Area state, the Channel Islands, Gibraltar or the Isle of Man.

Drivers who accumulate 6 or more penalty points during their probationary period will have their licences automatically revoked by DVLA acting on behalf of the Secretary of State for Transport. To regain full entitlement, the driver will be required to apply for a provisional driving licence and comply with the ‘learner’ conditions until they pass both the theory and practical tests.

In Great Britain, a driver of any age can be disqualified from driving for committing serious motoring offences such as drink or drug driving, dangerous driving, or causing death by careless driving. 

Where an individual is convicted of an offence such as dangerous driving, the court must order disqualification until an extended driving test is passed. However, the court also has discretion to disqualify until a test is passed where an individual is convicted of any endorsable offence. Where disqualification is obligatory, individuals will be ordered to take the extended test. In other cases, individuals will need to take the ordinary test. The extended driving test is more rigorous and longer than the standard driving test.

Individuals who acquire up to 12 or more penalty points within a 3-year period are disqualified from driving for at least 6 months. This is known as a totting up disqualification. 

Where an individual is disqualified under the totting up provisions, they may also be ordered to take an extended driving test.

Such orders made by courts in some other jurisdictions are recognised and applied by the DVLA as regards licence re-acquisition in Great Britain. 

Any future mandatory requirements could potentially be applied where an individual has been disqualified until a test is passed or their licence has been revoked under the New Drivers Act.

Minimum learning periods (MLP)

MLP is an approach adopted in a number of jurisdictions and countries and can vary from country to country and state to state. In MLPs, learners are required to undergo a minimum time period before taking a practical car driving test or obtaining a full licence. MLPs provide learners more time to develop their skills and the opportunity to gain experience in varied conditions, such as driving at night, in adverse weather, and in heavy traffic. Some MLPs are used in combination with a minimum number of learning hours and a learning syllabus.

Minimum learning periods implemented internationally

Minimum learning periods (MLP) are one of several measures, usually delivered as part of a pre-licensing system. 

The length of MLP in Australasia and North America ranges between 3 and 12 months and can be based on the age of the learner. For example, Victoria in Australia requires individuals under 21 to hold their learner permit for at least 12 months, while those 21 to under 25 must hold it for at least 6 months, and those 25 and older need to hold it for a minimum of 3 months. New York and California in the USA require a 6-month period for those under 18 years of age. Ontario, Canada requires 12 months, reduced to 8 months if an education course is completed.  

An alternative form of MLP is mandating a minimum number of supervised hours or a combination of the length of the minimum learning period and the minimum number of supervised hours.

The range of minimum supervised hours in Australasia and North America varies widely. In North America, 40 to 50 hours is the norm, while in Australasia, a minority of jurisdictions have no minimums, while others range from 50 to 120 hours.

As another variant, some European countries tend to use the minimum distance travelled rather than hours. However, the European Union is to change the driving licence rules in October 2025 and this may encourage changes in individual member states.

Safety impacts of minimum learning periods

MLPs are one of several measures that could have a positive impact on safety outcomes for young and novice drivers.  

During the mandatory MLP, learner drivers often practice under the supervision of a parent, guardian or driving instructor. This allows them to receive constructive feedback and correct mistakes in real-time, which could lead to better driving habits. A mandatory MLP is intended to provide young and novice drivers with enough time to experience different driving conditions, which is crucial for making safe driving decisions. 

The evidence summarised below suggests that MLPs can reduce both fatal and total collisions. A number of studies have examined collision rate changes after the introduction of minimum learning periods and minimum supervised hours. Six evaluations assess the impact of MLPs without the concurrent introduction of other new driver measures, such as post-test restrictions, but sometimes with a requirement for a minimum number of supervised hours. Two of these 6 studies were focused on 16-year-olds, which was the age when people can learn to drive in the relevant jurisdictions.

Four studies identified a positive impact on collisions. These were 12-month learner periods in Ontario^{[footnote 11]} and Quebec^{[footnote 12]}, Canada and 6-month learner periods in Kentucky^{[footnote 13]} and Connecticut^{[footnote 14]}, USA. Connecticut also increased requirements for a minimum number of hours behind-the-wheel instruction from 6 to 8 hours. Kentucky introduced a requirement for 60 minimum hours of supervised learning, of which 10 must be in the dark. Measured reductions in collisions range between 5% and 33% for different populations of interest in these 4 studies.

The remaining 2 studies were unable to detect an effect^{[footnote 15]}. These were in California and the city of San Diego (in California), where there was a 6-month learning period and 50 supervised hours required, of which 10 must be in the dark.

Additionally, a 2013 study^{[footnote 16]} analysed collision rates per 100,000 population of 16 and 17-year-old drivers in US states that introduced minimum learner license periods or minimum supervised hours from 1990 to 2009. It found that:

• for 3 of the 5 states where a 6-month minimum learning period was introduced (Connecticut, Minnesota and Virginia), a significant decline in 16- and 17-year-old driver fatal collision rates was seen
• when collision rates for all states introducing a minimum time learning period in the sample were pooled, there was a significant 7% reduction in 16- and 17-year-old driver fatal collision rates
• the pooled impact on fatal collisions for 16 and 17-year-old drivers across all states that introduced a minimum supervised hours requirement was not significant

Broader impacts of minimum learning periods

Looking at broader impacts, 2 studies considered the association between MLPs and driving test pass rates in Australia^{[footnote 17]}. In New South Wales, minimum learning hours were raised from 50 to 120 and the driving test was revised at the same time to be more challenging. There was an increase of 5 percentage points in the test pass rate in the 120-hour group compared to the 50-hour group, despite revisions to the practical test, however, the study did not report on statistical testing. In Queensland, when minimum supervised hours changed from none to 100 in 2007, there was a 7% increase in the test pass rate, however, statistical testing found this difference was not significant.

Public acceptance of minimum learning periods

In September 2025, the RAC Foundation published the results of a study undertaken by Ipsos on their behalf^{[footnote 18]}. The research was on young people’s attitudes to graduated driver licensing (GDL) and was conducted with people aged 17 to 19 (inclusive), who GDL would directly impact if it were in place today.

The version of GDL that Ipsos sought views on included:

• introducing a 6-month practice period as a minimum before being eligible to take a driving test
• no passengers aged 25 or under permitted for 6 months after passing the practical driving test, if the driver is under 20 years old
• 6 penalty points if the driver is caught carrying passengers in a restricted period

The study found that while initial reactions to GDL were negative (seen as too harsh, unfair, restricting personal freedom), when participants were provided with evidence about the risks associated with young drivers and international examples of GDL schemes, then elements of GDL were perceived more favourably than at the start of discussions. In this situation, a wider range of standpoints was reached by the end of the sessions.

The study concluded that the majority of participants were generally more supportive of pre-test measures to support and enhance the learning to drive experience (such as a longer pre-test learning period) and less supportive of post-test restrictions (such as limits on passengers).

Compliance with minimum supervised hours

Practice hours for minimum supervised hours are generally recorded in logbooks. Some studies^{[footnote 19] [footnote 20]} have assessed compliance with minimum supervised hours and found high levels of compliance. These studies either used limited random samples (41 logbooks) or used non-representative samples and depended on self-reported data.

DfT commissioned Driver2020, which trialled 5 interventions for learner and novice drivers on a voluntary basis, in which intervention group participants were offered an intervention and could choose if and how much to engage with it, rather than the intervention being a requirement for learning to drive. Engagement with interventions was very low, ranging from 3% to 16.5%.

One of the interventions tested in the Driver2020 project was an app-based logbook, which had an engagement rate of 3%. Participants in this group had a small incentive of a discount on learner driver insurance. The trial did not detect an impact on self-reported collisions for the first 12 months of driving in the intervention group that was offered the logbook.

Engagers with the logbook in the intervention group self-reported a greater distance of their learning being with passengers than the control group (20% of learning miles compared to 14%). However, the safety impact of learning to drive with passengers more frequently is unclear.

Another intervention tested in the Driver2020 project was a mentoring agreement between a novice driver and a supervisor. The mentoring agreement was a set of web-based materials to work through with a mentor, such as a parent, to allow novice drivers to agree and set voluntary limits on high-risk situations. The mentoring agreement had an engagement rate of 4%, meaning 4% of those offered the mentoring agreement registered and used the materials.

The trial did not detect an impact on self-reported collisions for the first 12 months of driving in the intervention group. Although this was a tool for novice rather than learner drivers, it’s included here to illustrate the low levels of engagement that voluntary tools have had when trialled in real-life settings.

Modular learning syllabus

Learner drivers are already encouraged to gain experience in a range of driving conditions as part of their learning journey. This includes practice during nighttime, on rural and urban roads, in poor weather and on higher-speed roads. Exposure to varied scenarios helps learners develop competence, adaptability and preparedness for real-world driving.

A modular learning syllabus could formalise this approach by requiring structured experience across diverse conditions. Though not widely adopted, some jurisdictions already mandate a minimum number of hours of nighttime driving. Expanding this into a comprehensive modular system could ensure learners gain experience in night driving, different road types and varied weather conditions.

Such a system could be supported by a digital logbook, e-learning modules and hazard perception training. A 2008 study published by the Department for Transport Cohort II: A study of learner and new drivers found that hazard perception is a trainable skill and that improving it can reduce collision liability. Young and novice drivers tend to lack this skill due to limited experience, so targeted training within a modular framework could enhance road safety.

E-learning could also address risky driving behaviours that learners may not fully understand and may be exposed to once they gain a full driving licence. Topics could include the dangers of peer pressure, drink and drug driving, mobile phone use while driving and speeding, all of which disproportionately contribute to collisions involving newly qualified drivers.

Logbook

In jurisdictions where a minimum learning period for car learner drivers is in place, the use of a logbook to record supervised practice hours has proven to be an effective component in increasing hours of practice. A 2011 study analysing the impact of minimum learning period measures in Queensland found that the introduction of a logbook to record practice hours resulted in a significant increase in average practice hours of over 29 hours.

Logbooks can be an effective measure to support and encourage compliance with minimum practice requirements, even if self-regulated, given that they enable learners to track their progress and serve as a useful tool in supporting their learning journey.

Logbooks support structured learning by allowing instructors and supervisors to monitor progress and identify areas for improvement. Additionally, a logbook could support wider learning objectives, including serving as a platform for logging hours of practice in varied driving conditions and completing complementary e-learning.

How to respond

See the ways to respond section of the consultation page on GOV.UK to find out how you can respond to this consultation.

The consultation period began on 7 January 2026 and will run until 31 March 2026. Ensure that your response reaches us before the closing date.

What will happen next

We will publish a summary of responses and the government response on the homepage for this consultation. Paper copies will be available on request.

If you have questions about this consultation, contact:

Road safety division
Department for Transport
33 Horseferry Road
London, SW1P 4DR

Alternatively, you can email: minimumlearningperiodconsultation@dft.gov.uk.

Full list of questions

These questions are listed here to give you an overview of what we are asking.

The consultation response form may include more questions, for example, questions about who you are.

See the ways to respond section of the GOV.UK home page for this consultation to read a full list of questions and find out how you can respond to them.

Question 1: In addition to holding a provisional licence and passing a theory test, do you agree or disagree with the introduction of further mandatory requirements for learner drivers before they can take a practical car driving test?

Question 2: If you agree, what age of learner car driver should these further mandatory requirements be applied to?

Question 3: Do you agree or disagree that any new mandatory requirements should include a minimum learning time period between passing a theory test and being able to take a practical car driving test?  

Question 4: If you agree, how long should the time period be?  

Question 5: If we introduced a minimum time period before a learner driver can take a practical car driving test, should the validity length of the theory test certificate be extended?

Question 6: Do you agree or disagree that new mandatory learner requirements should include a minimum number of car driving hours (With an eligible supervising driver and/or an approved driving instructor)?  

Question 7: If you agree, what should be the minimum required number of car driving hours?

Question 8: Do you agree or disagree that new mandatory learner requirements should include a mandatory modular learning syllabus to complete? 

Question 9: Do you agree or disagree that new mandatory learner requirements should include a mandatory logbook to complete?   

Question 10: Do you agree or disagree that new mandatory learner requirements should include mandatory e-learning to complete?  

Question 11: Should some learner drivers be exempt from any new mandatory requirements for learner drivers?

Question 12: If yes, who should the exemption/s apply to and why?

Question 13: How should exemptions be applied?

Question 14: Do you agree or disagree that any new mandatory learner requirements should apply to a driver whose licence is revoked for receiving 6 or more penalty points during their probationary period (Road Traffic (New Drivers) Act 1995)?

Question 15: Do you agree or disagree that any new mandatory learner requirements should apply to a driver who has been disqualified from driving for committing motoring offences and has been ordered by a court to retake a driving test (ordinary or extended)?

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.

Data protection

Your consultation response and the processing of personal data that it entails are necessary for the exercise of our functions as a government department. DfT will, under data protection law, be the controller for this information.

Personal data collected through this consultation is processed in line with our online forms, surveys and consultations privacy notice.

DfT’s privacy policy has more information about your rights in relation to your personal data, how to complain and how to contact the Data Protection Officer.

1. A J McKnight, R C Peck (2002) Graduated driver licensing: what works?, Injury Prevention 2002:8. ↩

2. Bouchard, J. et al. (2000) The Quebec graduated licensing system for novice drivers: a 2-year evaluation of the 1997 reform. T2000: 15th conference on alcohol, drugs and traffic safety. ↩

3. Williams, A. F. (2007). Contribution of the components of graduated licensing to crash reductions. Journal of Safety Research, 38(2), 177 to 184. ↩

4. Ulmer, F G., et al. (2001) Teenage crash reduction associated with delayed licensure in Connecticut. Journal of Safety Research, 32, 31 to 41. ↩

5. Walshe EA, Ward McIntosh C, Romer D, Winston FK. Executive Function Capacities, Negative Driving Behavior and Crashes in Young Drivers. Int J Environ Res Public Health. 2017 Oct 28.;14(11):1314. doi: 10.3390/ijerph14111314. ↩

6. An observational study of driver distraction in England – ScienceDirect, Biggest causes of distracted driving mistakes – RAC Drive and Young men 3 times more likely to get distracted behind the wheel –Fleet News ↩

7. Alfonsi, R., Anmari, A., and Usami, D. S. (2018). Lack of driving experience. European Road Safety Decision Support System (PDF, 400KB), developed by the H2020 project SafetyCube. ↩

8. Helman, S., McKenna, F., McWhirter, J., Lloyd, L. and Kinnear, N. (2013). Evaluation of a new learning to drive syllabus and process in GB: Effects on self-reported safety-related measures in learner drivers, and impact on approved driving instructors and supervising drivers. ↩

9. Wells, P., Tong, S., Sexton, B., Grayson, G. and Jones, E. (2008) Cohort II: A Study of Learner and New Drivers Volume 1 – Main Report. Transport Research Laboratory. ↩

10. Independent driving: evaluation (2014) Driver and Vehicle Standards Agency. ↩

11. A J McKnight, R C Peck (2002) Graduated driver licensing: what works?, Injury Prevention 2002:8. ↩

12. Bouchard, J. et al. (2000) The Quebec graduated licensing system for novice drivers: a 2-year evaluation of the 1997 reform. T2000: 15th conference on alcohol, drugs and traffic safety. Note: This reform was accompanied by a 2-year probationary period and additional measures of zero blood alcohol concentration for learners and probation period drivers, and lower penalty point limits. ↩

13. Williams, A. F. (2007). Contribution of the components of graduated licensing to crash reductions. Journal of Safety Research, 38(2), 177 to 184. https://doi.org/10.1016/j.jsr.2007.02.005. ↩

14. Ulmer, F G., et al. (2001) Teenage crash reduction associated with delayed licensure in Connecticut. Journal of Safety Research, 32, 31 to 41. ↩

15. A J McKnight, R C Peck (2002) Graduated driver licensing: what works?, Injury Prevention 2002:8. Note: we have taken these findings from a review and were unable to access the original sources, so we cannot determine whether the studies were measuring the impact of the minimum learning period or the graduated driver licensing (GDL) system as a whole. ↩

16. Ehsani, J. P., Bingham, C. R., and Shope, J. T. (2013). The effect of the learner license Graduated Driver Licensing components on teen drivers’ crashes. Accident Analysis and Prevention, 59, 327 to 336. ↩

17. AustRoads (2015) Summary of Literature of the Effective Components of Graduated Driver Licensing Systems. ↩

18. Exploring young people’s attitudes to Graduated Driver Licensing. ↩

19. Marshall, B., and Parish, A. (2014). Young Driver Safety A public attitude survey. www.racfoundation.org. ↩

20. Using a random sample from an online survey panel and weighted it to be representative of the UK population for age, gender and region: Brake and AXA UK driver survey reports: Driver testing and education (PDF, 2.7MB). 2023. Driver testing and education: data tables – Brake ↩