A new research report by Ipsos, commissioned by the RAC Foundation, sheds light on how 17- to 19-year-olds in England view proposals for a Graduated Driver Licensing (GDL) system.

In addition to initial thoughts, the report examines how these views evolve when participants engage with evidence and international examples.

Despite widespread professional support for the introduction of GDL in the UK, the government states it has no plans to introduce it.

Youthful thinking

The study invited 66 participants, including non-drivers, learner drivers, and newly licensed drivers, from urban and rural settings across England to deliberate over a proposed GDL scheme.

The proposal presented included three main rules: a six-month minimum learning period before taking a practical test; a restriction on carrying passengers aged 25 or under (unless accompanied by a 35+ adult) for six months after passing; and a six-point penalty (leading to licence suspension and a re-test) for breach of the passenger rule.

Exemptions were proposed for young parents carrying dependants, those with specific disabilities, members of the armed forces, and in-work driving.

Caution, scepticism, fairness 

Initially, participants generally responded negatively to the GDL framework.

Many described the proposals as too harsh and unfairly restrictive, arguing that they penalised all young drivers for the behaviour of a minority.

The passenger restriction was especially controversial, with many feeling it unduly impinged on personal freedom and social lives.

In contrast, the concept of an extended learning period was considered more acceptable, viewed as supportive rather than punitive. 

Participants often attributed collisions involving young drivers to poor behaviour or risk-taking, rather than to inexperience or age alone, making it harder for them to see GDL as a fair measure.

Many voiced concerns about social equity, worried that requiring extra lessons or restrictions could penalise young people from lower-income backgrounds. 

Shifting views

As the workshops progressed and participants reviewed evidence from international GDL systems and statistics on young driver risk, opinions began to shift for some.

A subset of participants moved toward a conditional acceptance of GDL, provided specific rules (especially the passenger rule) were softened or tailored.

Some former opponents acknowledged that change was necessary, given the high risks in early independent driving.

Nevertheless, others remained firmly opposed, unable to reconcile perceived infringements on mobility and freedom with the safety rationale.

In these cases, the fairness argument often outweighed the safety case in the trade-off.

Among the three rules, the minimum learning period was the least polarising.

Many participants accepted it as logical and potentially beneficial for building experience before full licensure.

The passenger rule, however, consistently attracted the most pushback.

Some participants suggested modifications, for example, phased or contextual restrictions, or greater flexibility for exempt cases.

Communication and sensitivity

The study underscores one of the key challenges for GDL adoption: public acceptability.

Many participants started from a default scepticism or defensiveness toward restrictions.

What helped shift views were comparative examples from other countries and clear evidence about how GDL can reduce risk.

The authors argue that for GDL to be viable in England, its design must be guided not only by safety evidence but also by empathy for young people’s lived experiences, striking a balance between safety, mobility, fairness, and viability.

They also stress that the passenger rule in particular needs careful socialisation to help people understand the safety logic behind it. 

As the UK prepares a new National Road Safety Strategy, this research offers a timely window into how one of the most predictable reform areas, young driver licensing, might be framed, implemented and accepted (or resisted) by those it seeks to govern.

Read the full report here.