GDL systems typically consist of  three stages: learner’s permit, which allows driving only under  supervision; intermediate licensure, which allows unsupervised driving  under certain restrictions; and full licensure. While states are responsible for implementing teen driver safety programs,  NHTSA focuses its efforts on three priorities: (1) limiting teen access to  alcohol, (2) promoting seat belt use, and (3) supporting state  implementation of GDL systems. U.S.  Department of Transportation, National Highway Traffic Safety Administration. Most State GDL Systems Include Key Requirements, but Specific Provisions Vary By State and Research on These Provisions Is Limited

		States Generally Include Requirements That Safety Experts Considered Key, but Specific Provisions Vary Among States

According to NHTSA officials, state officials, and other transportation  safety experts, key requirements of a GDL system include a minimum  entry age, a learner’s permit stage that includes supervised driving, and  restrictions on nighttime driving and driving with teen passengers. Additional key requirements for teen drivers sometimes addressed as part  of a GDL system include seat belt laws, bans on electronic devices, driver  education, and parental involvement. Forty-nine states and the District of  Columbia have a three-stage GDL system and, as shown in table 1, most  states include the key requirements identified by officials. For example,    all states have a minimum entry age and a learner’s permit stage,    49 states have nighttime driving restrictions,    43 states have passenger restrictions,    50 states have seat belt laws,    33 states have bans on electronic devices, and    34 states require completion of driver education before obtaining a driver’s  license. Nighttime driving restrictions. This study did not show a significant change in the  proportion of teen drivers using cell phones after implementing a cell  phone ban for teens. Parental involvement. States Face Research, Legislative, and Other Challenges to Improve Teen Driver Safety and Have Developed Strategies to Address Them

Officials from 77 federal, state, and national organizations we interviewed  highlighted several challenges to improving state teen driver safety  programs, including research limitations discussed previously and barriers  to enhancing teen driver legislation, among others. These officials also  highlighted a variety of strategies to address the challenges. Limited research identifying effective approaches for improving teen  driver safety. In addition,  NHTSA provides information on teen driver safety through the  Countermeasures That Work guide—which is updated annually and  outlines a number of science-based strategies for major highway safety  problem areas, including a section on young drivers. Enacting state teen driver legislation. Many officials stated that groups,  including some legislators, oppose new teen driver safety laws because the  laws infringe on an individual’s personal freedom and may restrict teens  from driving themselves and others to and from activities such as school  and work. Enforcing teen driver safety laws. Limited resources. Limited access to standardized driver education for teens. Other challenges. Challenges with the judicial system. Recommendation for Executive Action

To assist states in understanding and implementing key requirements of a  teen driver safety program and to help identify the optimum provisions of  GDL systems, we recommend that NHTSA conduct additional research on  specific GDL provisions, including minimum entry age, nighttime and  passenger restrictions, the effect of bans on electronic devices, driver  education, and parental involvement. Specifically, this report (1) identifies the key requirements of a  Graduated Driver Licensing (GDL) system and describes the extent to  which state programs include these requirements, and (2) describes  challenges that states have faced in improving teen driver safety and how  NHTSA and the states have addressed these challenges. Appendix II: Recommended GDL Requirements

Appendix III: Requirements of a GDL System and State Driver Safety Provisions

Midnight – 6 a.m.  restriction from age  16 to 17 (1 year)
No more than 3  passengers from age  16 to 17 (1 year)
Beginning July 1,  2010:  No more than 1  passenger from  age 16 to 17 (1  year)
Program includes 30  hours of classroom  instruction, 12 hours  in a simulator, and 3  hours in a car  6 month holding  period and 40  supervised driving  hours, 10 of which  must be at night or  in inclement  weather  1 a.m. – 5 a.m.  restriction from age  16 to 16, 6 months  (6 months)
Midnight – 5 a.m.  restriction from age  16 to 16, 6 months  (6 months)
Unknown if required  for licensing  Students that have  taken driver  education are not  required to undergo  supervised driving  hours  Program includes 30  hours of classroom  instruction, and 6  hours of behind-the- wheel training or  equivalent  6 month holding  period and zero  supervised driving  hours  11 p.m. – 4 a.m.  restriction from age  16 to 18 (2 years)
No more than 1  passenger from age  16 to 18 (2 years)
Program includes 30  hours of classroom  instruction (must not  be completed in less  than 15 days), 6  hours of behind-the- wheel training, and  6 hours of  observation  6 month holding  period and 50  supervised driving  hours, 10 of which  must be at night  11 p.m. – 5 a.m.  restriction from age  16 to 17 (1 year)
Midnight – 5 a.m.  restriction from age  16 to 17 (1 year)
No passengers for  the first 6 months of  intermediate  licensure and no  more than 1  passenger for the  second 6 months of  intermediate  licensure (1 year)
Program includes a  4-hour awareness  course, 30 hours of  classroom  instruction, and 6  hours of behind-the- wheel training  6 month holding  period and 40  supervised driving  hours  11 p.m. – 5 a.m.  restriction from age  16, 4 months to 18  (1 year, 8 months)
No passengers other  than parents or  driving instructor for  the first 6 months of  intermediate  licensure and no  passengers other  than parents, driving  instructor, or  members of the  immediate family for  the second 6 months  of intermediate  licensure (1 year)
Required for  licensing (if under  18)
Students that have  taken driver  education reduce  their learner’s permit  holding period from  6 months to 4  months  Program includes 30  hours of classroom  instruction (if taken  in a commercial or  secondary school),  and 8 hours of  behind-the-wheel  training  6 month holding  period and 50  supervised driving  hours, 10 of which  must be at night  10 p.m. – 6 a.m.  restriction from age  16, 6 months to 17  (6 months)
No more than 1  passenger from age  16, 6 months to 17 (6  months)
September to June:  11 p.m. – 6 a.m.  Sun.
Why GAO Did This Study

Teen drivers ages 16 to 20 have the highest fatality rate of any age group in the United States. As a result, states have increasingly adopted laws to limit teen driving exposure, such as Graduated Driver Licensing (GDL) systems, which consist of three stages: a learner's permit allowing driving only under supervision; intermediate licensure allowing unsupervised driving with restrictions; and full licensure. The National Highway Traffic Safety Administration (NHTSA), within the Department of Transportation (DOT), supports state teen driver safety programs by researching teen driver safety issues, working to limit teens' access to alcohol, promoting seat belt use, and encouraging states to implement GDL systems. This requested report identifies (1) key GDL system requirements and the extent to which state programs include these requirements, and (2) challenges states face to improve teen driver safety and how states and NHTSA have addressed the challenges. GAO examined state GDL systems, visited six states, and interviewed federal and state traffic safety officials and other experts.

What GAO Found

Key requirements of a GDL system, according to traffic safety experts GAO interviewed, include a minimum entry age, a learner's permit phase that includes supervised driving, and restrictions on nighttime driving and driving with teen passengers. Additional key requirements sometimes addressed as part of a GDL system include seat belt use, bans on using electronic devices such as using cell phones while driving, driver education, and parental involvement. Forty-nine states and the District of Columbia have a three-stage GDL system and most state systems include key requirements. For example, all states, including the District of Columbia, have a minimum entry age and learner's permit stage, 49 have nighttime driving restrictions, and 43 have passenger restrictions. However, specific provisions vary. For example, nighttime driving restrictions vary from 6 p.m. to 6 a.m. in certain states to 1 a.m. to 5 a.m. in others. While research shows that GDL systems are associated with improved teen driver safety, additional research on specific requirements, such as minimum entry age, the learner's permit phase, nighttime driving and passenger restrictions, bans on electronic devices, drivers' education, and parental involvement could help state officials determine optimum provisions to strengthen their GDL systems. For example, limited research is available to indicate optimal times to limit teen driving at night or the effect of electronic device bans on teen drivers. In addition to limited research, officials identified several challenges to improving state teen driver safety programs, such as difficulty in enacting and enforcing teen driver safety laws, limited resources to implement a teen driver safety program, limited access to standardized driver education, and difficulties involving parents as their teens learn to drive, among others. For example, enacting teen driver laws can be challenging because some groups, including legislators, believe these laws infringe on an individual's personal freedom. Officials have identified a number of strategies to address these challenges. For example, several states created a commission or task force to rally public support for new teen driver laws. Strategies to address other challenges included implementing enforcement checkpoints targeting teen drivers, seeking funding from private companies, developing driver education standards, and encouraging parent participation in teen driver programs. NHTSA also helps states address these challenges in several ways, including providing information on its Web site, publishing an annual guidebook on effective traffic safety countermeasures for major highway safety problem areas, including young drivers, and regular contact with state officials.