Consultation outcome

Simplifying driving licence upgrade and motorcycle test rules

Updated 14 July 2021

Applies to England, Scotland and Wales

1. Executive summary

The government is proposing two relatively small changes to the law around the issue of driving licences, and on the riding test for medium sized (‘A2’) motorcycles.

This consultation tells you about the proposed changes and gives you the opportunity to comment on them. The Driver and Vehicle Standards Agency (DVSA), which delivers the driving test, will collect and review comments to see if there is general support for the changes, or whether there are any concerns about them.

2. Summary of the changes

2.1 Getting manual entitlement from a test using an automatic vehicle

To allow drivers who passed their driving test in an automatic vehicle in one of the following categories to drive a manual vehicle as long as they can already drive a manual vehicle in another category:

• car and trailer (B+E)
• medium-sized lorry (C1) and its trailer towing equivalent (C1+E)
• minibus (D1) and its trailer towing equivalent (D1+E)

This recognises that the driver has already shown that they can drive a manual vehicle and will be familiar with manual transmission.

In 2014 a similar change was introduced. It related to:

• lorry (C)
• articulated lorry (C+E)
• bus or coach (D)
• bus or coach towing a trailer (D+E)

These vehicles have developed technologically. It’s now common for them to have advanced transmission mechanisms that are either automatic or semi-automatic.

The number of such vehicles with a manual gearbox is reducing. As a result, there’s little demand for candidates to take a ‘manual’ test compared to those who take a test in an ‘automatic’.

We think that the time is right to bring medium-sized lorries and mini-buses, together with their trailer entitlements, into line with the test and licence upgrade arrangements for these larger vehicles.

The government considers that this proposal should also apply to car and trailer tests. This is because most drivers who want to tow a trailer with their car will already have full manual entitlement.

It shouldn’t matter if they happen to pass their test using a vehicle with automatic transmission, which may have been supplied by their trainer.

2.2 Reducing the minimum engine capacity needed for a standard motorcycle (subcategory A2) test

To allow candidates to take their A2 motorcycle test on motorcycles with a cylinder capacity as low as 245cc. The test motorcycle must still meet the power output and other requirements of the A2 motorcycle test category.

The government supports these changes as it’s their policy to make changes that relax regulations wherever possible. These changes benefit drivers, riders, and industry by making the rules and requirements more simple and easier to meet.

The law specifies the type of vehicle that a candidate can use for their driving or riding test. It is known as the minimum test vehicle (MTV) requirement.

The MTV is specified for each test category so that candidates take their test in an appropriate vehicle. The test pass will allow them to drive or ride any vehicle in that category, unless the driver’s licence carries restrictions.

To reflect changing vehicle types and engine technologies the regulations on MTVs occasionally need to be reviewed and changed.

There are now many motorcycles with a smaller engine that produces enough power to put them in the A2 category.

The A2 category of motorcycle must:

• not be derived from a vehicle of more than double its power
• have power output up to 35kW
• have a power-to-weight ratio up to 0.2kW/kg

This proposal will not change the licence category. It’s about what motorcycle a person can ride when they take their test. The current regulations do not cater for the range of vehicles now in the A2 category.

We propose to reduce the MTV for A2 motorcycle tests to 245cc so that it includes ‘250cc’ motorcycles that produce enough power for the category. Candidates could then take their A2 test on a lighter motorcycle.

3. What do you think?

Let us know your views on the possible impact of these change on road safety and business. You can do this by answering the questions in Section 5.

4. The proposals

4.1 Getting manual entitlement from a test using an automatic vehicle

Before 2014, if you passed your category C and D vehicle test in an automatic vehicle you would earn a licence that only let you drive automatic vehicles.

Since then, if you took your test in an automatic bus or lorry, as long as you already held a full manual entitlement in another category, then you will have earned a licence to drive both automatic and manual category C and D vehicles.

But anyone who passed in a vehicle with a manual gearbox would also be able to drive vehicles with automatic transmission. This is because using a gearbox while driving is a specific skill that needed to be tested.

The transmission on large vehicles are now almost always automatic or semi-automatic. It seemed unnecessary to restrict drivers to drive automatic large vehicles only, when they’re already allowed to drive a manual vehicle.

There was no evidence that road safety would be compromised.

When the Driver and Vehicle Standards Agency (DVSA) consulted on the possible costs and benefits to business on those changes, we received 339 responses.

Response	Number of responses
Agreed with the proposal	179
Expressed no opinion or skipped the question	97
Disagreed with the proposal	63

We noted that there were some objections to the change, but were not persuaded by arguments either way.

In full, our conclusion was:

Of the number of people who disagreed with allowing this proposal, many cited road safety grounds. Responders thought that drivers who wanted to drive a large manual vehicle should actually train and take their test on a large manual vehicle, rather than gain it by virtue of holding a different category of manual vehicle.

They thought that driving a smaller manual vehicle was very different to the handling of a large manual vehicle, not least because of the difference in the number of gears and gear changes. For these reasons they considered that there would be road safety issues in that drivers would not be competent to drive large manual vehicles. Others who disagreed with the proposal felt that automatic vehicles are more expensive than manual vehicles and not readily available.

In response, the DSA accepts that there are some differences in the handling characteristics between a car and a lorry, however, the Agency feels that the road safety case is not proven either way and that in any case, most automatic vehicles do have a lever for gear changes, (it is a clutch that is missing).

The Agency currently allows the 3 pedal version of the Scania Opti Cruise to be used for taking a manual test. When driving this vehicle the clutch is only operated when manoeuvring the vehicle at very slow speed or when moving off and stops. All gear changes are carried out automatically.

Drivers will still be able to come to test in a manual vehicle; or, opt to use an automatic vehicle; the choice will be for the driver to decide.

Costs or benefits

No one provided a reply on the costs or benefits of this change to inform our impact assessment. As a result, DVSA concluded that the change would benefit candidates and industry, whilst having almost no cost to industry or government.

Road safety issues

We are not aware of any road safety issues resulting from the changes made in 2014. However, if you are, please tell us.

Extending the practice to sub-categories of large vehicles and trailers

Our view is that extending this practice to the sub-categories of large vehicles and their trailer tests is a logical and progressive step. It simplifies matters.

For the haulage and passenger carrying industries, it would help because their drivers who passed in automatic vehicles would be able to drive manual ones when needed.

Car and trailer

This change would also apply to the car and trailer test (category B+E). So a driver who passed their B+E test in an automatic vehicle would also be allowed to tow their trailer, caravan, or horsebox with a manual vehicle, provided they already held a manual car licence.

Drivers with an existing licence to drive an automatic vehicle in one of the categories listed, who already hold a manual licence for another category.

Some drivers who already hold a manual car licence are licensed to only tow with an automatic vehicle after passing a B+E test using an automatic car.

We propose that these drivers should be able to update their licence to enable them to tow with a manual vehicle by writing to the Driver and Vehicle Licencing Agency (DVLA) once the law is changed. They would not be able to drive a manual vehicle until their licence is changed.

We also propose a similar arrangement for anyone currently licensed to drive category C1, C1+E, D1 and D1+E in an automatic vehicle, who holds a manual licence in another category.

4.2 Reducing the minimum engine capacity needed for a standard motorcycle (subcategory A2) test

A2 motorcycles are an increasingly popular type of motorcycle, ideal for urban and commuting use.

Reducing the size of the motorcycles that may be used for the A2 motorcycle test acknowledges changes in engine capabilities and power output.

Logically, if a motorcycle has a power that it requires an A2 licence to ride it, then a candidate ought to be able to take their test using that machine.

The current regulations say a motorcycle used for the A2 test must be at least 395cc.

Many candidates take their motorcycle test on a motorcycle supplied by their trainer. However, in order to comply with the MTV requirement, some motorcycle trainers choose to use a 600cc machine, but restrict its power output to bring it into the A2 category. This allows them to remove the restriction and use the same motorcycle for A category tests. Thus saving the need for another motorcycle.

However, these larger capacity restricted motorcycles may not be suitable for all candidates as they may be heavier or larger.

Motorcycles typically have an engine that is slightly smaller than the advertised cylinder capacity(cc). For example, a motorcycle referred to as a ‘250cc model’ would actually have a measured capacity of 249cc.

This meant that specifying an MTV of 400cc for A2 motorcycles prevented candidates from using a ‘400cc’ model for the test because their actual engine size was just below the legal requirement.

So the government introduced a 5cc tolerance, taking the MTV down to 395cc. This brought into scope many more brands of motorcycle for use on the A2 test.

Similarly, applying this 5cc tolerance to the new regulation would mean that motorcycles marketed as 250cc, but actually slightly less, will be included as long as they meet the power output and other requirements.

The benefits of this proposal

Accessibility

Many people would find the lighter 250cc models of motorcycle much more suitable for them.

It could also encourage more people to upgrade from an A1 category motorcycle (up to 11KW and 125cc) after their compulsory basic training (CBT). They might then feel comfortable and safe enough to upgrade their motorcycle to a 250cc or slightly larger model.

Demand for training and tests

It’s difficult to predict the overall effect this proposal could have on motorcycle use and on the respective use of the different categories of motorcycle. Predictions are made even more complex by the wide range of factors that will influence people’s future decisions about their journeys and commuting.

Based on the effects of earlier legislation DVSA expects that any impact of this proposal to be small. It is possible that the demand for training and A2 motorcycle tests could increase, which would impact motorcycle training schools.

We do not want to put motorcycle trainers to the expense of buying new machines to comply with new regulations. They can carry on using larger motorcycles if they want to. However, this proposal will give them the option to use 250cc models and should help them to respond to any increase in demand and other market forces.

The effects of earlier legislation

The Department for Transport assessed the effect of earlier changes in legislation in its ‘Post Implementation Review (PIR) of the Third Directive on driving licences’ (PDF, 686kb, 31 pages).

It considers the effects on the motorcycle industry, riding test candidates, and road safety.

It focuses on whether:

• motorcycle sales were affected
• motorcycle training schools changed the motorcycles they use
• the changes discouraged riders from taking their test and instead continued to ride on the basis of their CBT
• the motorcycle categories and MTV rules caused women not to take their motorcycle test

The review says that, when the regulations were introduced, candidates had to use larger motorcycles for test because the MTV specification was not the same as the types of motorcycle available.

As a result, we brought the MTV down by 5cc so that 395cc motorcycles can be used in A2 tests. This brought many more motorcycles into scope.

On the subject of women taking their motorcycle test the review’s analysis concluded:

…there has been no statistically significant effect on the motorcycle pass rate by female candidates as a result of introduction of the Regulations. Although the overall numbers of tests taken by women has decreased (bike sizes notwithstanding), there has also been an overall decrease in the number of tests taken by men. The trend in pass rates would suggest that it is not the size of the bike that is discouraging females from taking a practical test.

In the context of the rules around motorcycle licence acquisition, including the age requirements and progressive access, which are not changing, this is not a particularly significant change.

The government sees this proposal as a pragmatic response to emerging trends in motorcycle use. It wants to make the test more accessible and see some road safety benefit in riders training and then gaining a full A2 motorcycle licence.

It’s possible this proposal could promote the use of A2 motorcycles, perhaps for commuting to work, or for making deliveries. That could help to reduce congestion and benefit the environment.

This consultation asks for your views on how this proposal could affect the motorcycle training industry.

5. Responding to the consultation

The consultation will close at 11:45pm on 22 March 2021. We cannot accept late responses.

You do not have to answer every question. You may be more interested in proposal 1, or proposal 2 for example. If you do not have a strong view, then you need not answer the question.

Other ways to respond

You can respond by email if you cannot use the online form. If you respond by email, use the questions here to format your reply.

DVSA consultations
consultations@dvsa.gov.uk

Because of coronavirus, we cannot accept responses by post. Tell us if you’re unable to respond online or by email.

Email consultations@dvsa.gov.uk if you need this consultation document in an alternative format such as braille or audio CD.

If you think someone else might be interested

If you have any suggestions of others who may wish to be involved in this process, share the consultation with them or contact us.

About you

Question 1

Please tell us why you are interested in this consultation. We are particularly interested to know if you are a:

• member of the public
• car and trailer trainer
• large goods vehicle trainer
• bus or minibus trainer
• motorcycle trainer
• representative body / organisation

If you prefer not to answer Question 1, your responses will still be considered.

Are you responding on behalf of an organisation?

If you are, please make it clear to us who the organisation represents and, where applicable, how the views of members were assembled.

If you represent a business, then please tell us if your business has:

• 1-9 employees
• 10-49 employees
• 50-249 employees
• more than 250 employees

Proposal 1: getting manual entitlement from a test using an automatic vehicle

Manual entitlement granted to candidates who pass their B+E, C1, C1+E, D1, or D1+E test using a vehicle with automatic transmission, provided they already have a full manual entitlement in another category.

Question 2

Do you agree or disagree, with this proposal?

Please tell us the reason for your answer.

Question 3

Do you think this proposal would improve, reduce, or have no effect on road safety?

Please tell us the reasons for your answer, using supporting evidence where possible.

Question 4

Do you have any information on the costs, or benefits to industry or society that would come from this proposal?

Question 5

If you have a business that will be affected by this proposal, please tell us if you think it would:

• have an overall cost to your business
• have an overall benefit to your business
• have no significant cost or benefit.

Please give an indication of the reason for, and the size of, the costs or benefits to you or your business.

Question 6

Do you agree, or disagree that drivers should be able to retrospectively claim manual entitlement as explained at the end of section 4.1?

Please tell us the reason for your answer.

Question 7

Do you agree, or disagree, that the change should apply to car and trailer tests (B+E)?

Please tell us the reason for your answer.

Proposal 2: reducing the minimum motorcycle engine capacity that’s needed for a standard motorcycle (subcategory A2) test

To reduce the MTV requirement for motorcycles being used to take the A2 test to 245cc.

Question 8

Do you agree, or disagree, with this proposal?

Please tell us the reason for your answer.

Question 9

Do you think this proposal would improve, reduce, or have no effect on road safety?

Please tell us the reason for your answer and give any supporting evidence.

Question 10

Do you have any information on the costs, or benefits to industry or society that would come from this proposal?

Question 11

If you have a business that will be affected by this proposal, please tell us if you think it would:

• have an overall cost to your business
• have an overall benefit to your business
• have no significant cost or benefit.

Please give an indication of the reason for, and the size of, the costs or benefits to you or your business.

6. What will happen next

A summary of responses, including the next steps, will be published within three months of the consultation closing on 22 March 2021.

7. 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.

To help with this, please explain 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 for Transport.

The department will process your personal data in accordance with the Data Protection Act (DPA) and in the majority of circumstances, this will mean that your personal data will not be disclosed to third parties.

Read the DVSA consultations privacy notice to find out how we collect, store and use your information.

8. Consultation principles

This consultation is being conducted in line with the government’s consultation principles.

Contact the Department for Transport if you have any questions about the consultation process.

Department for Transport consultations team
consultation@dft.gov.uk 

Do not send your consultation response to this address.