Northern Ireland has announced the introduction of graduated driving licences during 2026. The concept has been widely discussed for at least a couple of years as part of the UK's ongoing debate on the subject of road safety. Northern Ireland, which will bring in the new licence in October, is the first UK country to announce a firm intention and timeline for the adoption of the measure.
Campaigners have long called for additional restrictions and checks on young and new drivers, and on older drivers. Consultation has already been launched seeking opinions about the introduction of mandatory eye tests for older drivers. The government has mentioned the age of 70, but has also said that commencement of mandatory eye tests below that age will also be considered. Drivers already have to renew their licences every three years from the age of 70, and make a declaration that their eyesight is still good enough to drive.
Northern Ireland's planned graduated licence scheme will place restrictions on younger drivers, with the intention of reducing the number of fatalities and injuries caused by traffic accidents.
What is the graduated driving licence?
Graduated licensing means that there are different levels of driving licence. To some extent we are already familiar with the concept in practice in the form of provisional and full licences. The former imposes restrictions on the licence holder until they have met the criteria required to hold a full licence. Those criteria are the successful passing of the driving theory and practical tests.
Northern Ireland's graduated licensing will build on that basic concept, introducing new restrictions on novice drivers who have recently passed their tests.
What restrictions will be imposed on NI's new drivers?
The main changes that will come into force in October are:
- A mandatory minimum learner period before testing. Learner drivers will not be allowed to sit their practical test until at least six months after the date of issue of their provisional driving licence. There are exemptions for carers and motorcyclists.
- Learner drivers must complete 14 modules in a programme of training. The training will have to be signed off by an approved driving instructor or a supervising driver that could be a parent or guardian.
- There will be an increased restriction period (rising from 12 months to 24 months) requiring new drivers to display an 'R' plate mark on their vehicles after passing their test. A different colour of 'R' plate will distinguish drivers in their initial six-month period
- For the first six months after passing their test, new drivers up to the age of 24 will only be permitted to have one passenger aged between 14 and 20 in their car between the hours of 23:00 and 06:00
- This restriction will not include immediate family members and will not apply if someone aged 21 or over, who has held a driving licence for at least three years, is sitting in the front seat of the vehicle.
- Learner drivers will be allowed to drive on the motorway if they are accompanied by an approved instructor. They will also be allowed to drive on the motorway up to the posted speed limit, after passing their test
- The current speed limit of 45mph for restricted drivers will be removed.
- Drivers who do not comply with the restrictions could face the following penalties:
- Failure to display the specified distinguishing mark (‘R’ plate) during the two-year new driver period. Potential £1,000 fine alongside three penalty points
- Driving with an unauthorised passenger in the car during the first six months after passing test. Potential £1,000 fine alongside three penalty points
- Failure of driver or owner of vehicle or other person required to do so, to give information for purposes of identification to police. Where the driver of a vehicle is alleged to be guilty of an offence under Article 19AB(8). Potential £1,000 fine alongside three penalty points.
- The Road Traffic (New Drivers) (Northern Ireland) Order 1998 sets a two-year probationary period for new drivers. Drivers who collect six or more penalty points within this period will have their licences revoked and will be required to retake their driving tests.
Only Northern Ireland for now
Northern Ireland's announcement of graduated driving licences is an indication of UK-wide trends in road safety thinking but the announcement does not imply an impending adoption of the measure across the rest of the UK. Northern Ireland's devolved Assembly makes the laws governing driver licensing there; however, where Scotland and Wales are concerned, this area of law is what is termed a reserved matter, meaning it is legislation that was not included in the powers devolved to the Scottish or Welsh parliaments. Driver licensing laws for England, Scotland and Wales are legislated by Westminster.
Separate jurisdictions notwithstanding, there is a strong likelihood that similar measures will be introduced in the rest of the UK. Many of the features of Northern Ireland's graduated driving licence laws have been included in consultations opened by the government in Westminster, and hinted at in its published Road Safety Strategy, which cites many papers and reports on graduated driver licensing in its endnotes.
Proof of the pudding
Graduated driving licences, along with other measures that have been announced, including lowering permitted blood-alcohol levels, show that the government is taking steps to reduce the number of road casualties. However, the work of road safety pressure groups goes on, and many are already complaining that progress is too slow and proposed measures don't go far enough.
Even if Westminster drags its heels or resists implementing graduated licensing in England, Scotland and Wales, a demonstration by Northern Ireland that the move has a real effect on casualty statistics would certainly be a powerful argument for duplicating the measure here.
