Ontario's move to graduated licensing

By: Drivers.com staff

Date: Wednesday, 24. October 2007

Ontario was the first jurisdiction in North America to adopt a full-fledged graduated driver licensing (GDL) system for all new drivers.

Following cabinet endorsement in June 1993, the legislation for GDL moved quickly through the system and by December it had passed into law. This was record-breaking speed, according to Assistant Deputy Minister and Registrar for Motor Vehicles Kim Devooght. And it reflects the extent of government commitment to the initiative and a level of public support that's been estimated as high as 87%.

The system was initiated on April 1, 1994, and was fully implemented as of June 6. It's a two-level system with provision for a road test in each level and restrictions that are gradually lifted as drivers move through.

Drivers coming from jurisdictions outside the province that have driver licensing exchange agreements with Ontario (all Canadian provinces and territories, the United States, and Japan) are exempt from the conditions of GDL provided they have at least two years' driving experience. These drivers will receive an Ontario driver's license without having to complete a knowledge test or road test, provided they meet all the medical requirements.

Licensed drivers from these jurisdictions with less than two years' driving experience will be allowed to enter Level 2 of the GDL system, and they can take a Level 2 road test to become fully licensed after they have accumulated two years' driving experience under the system.

Drivers from jurisdictions without a licensing agreement with Ontario must meet all medical requirements and pass a vision and knowledge test on the rules of the road. If they don't have proof of more than two years' driving experience, they will be treated as new drivers. If they do have such proof, they will be allowed to take a Level 2 road test and become fully licensed drivers if they pass it. If they fail, they can schedule a Level 1 road test.

All drivers holding a class 'L' (Car) or Class 'R' (Motorcycle) learner's license before April 1, 1994, were allowed to continue under the existing system. However, they had to pass their road test before June 6, 1994 to avoid the graduated system. If they didn't pass this test before June 6, they entered Level 2 of the graduated system.

Anxious new drivers

Prior to the initial implementation date of April 1, 1994, aspiring new drivers almost literally invaded driver examination centers in an attempt to squeeze through before being caught in the GDL mesh. One center in downtown Toronto reported that, for a two-week period in March, applications for learner permits soared from the normal rate of about 150-200 per day to more than 700 per day.

At some centers, police had to be called in to maintain order in the line-ups, and even that, said one examiner, didn't prevent friction between impatient applicants.

License costs go up

The cost of an Ontario driver's license increased considerably under the new system. The previous charge of $31 covered the knowledge test, vision test, road test, and a charge for the license itself. The new rates are $10 for the knowledge test; $40 for the Level 1 road test; $75 for the Level 2 road test. Novice drivers exiting the graduated system will pay an additional $50 for a five-year driver's license, bringing the total to $175.

The second road test

A prototype of the Level 2 road test was developed by consultants Engel and Townsend under contract to the Ontario Ministry of Transportation. Data analysis from field tests conducted over the summer will be used to finalize test procedures, set examiner training, and set passing scores based on norms provided by the field test data. The same prototype is being used for the development of a Level 2 motorcycle test.

The prototype is based on a similar test (also developed by Engel and Townsend) now being used for commercial drivers throughout the U.S. The U.S. Commercial Driver License test is the first research-based driver license test to be developed and used in North America. It cost over $1 million to develop and it emphasized three key factors: what behaviours are involved in safe driving; what the examiner has to do to see the driver performing these behaviours; and what criteria the examiner can use to decide whether the driver performed these behaviours correctly. The test relies on a high standard of examiner training and consistency in scoring license applicants.