NSW Audit Office - Performance Reports - 2011 - Improving Road Safety: Young Drivers

New South Wales

Auditor-General’s Report

Performance Audit

Improving road safety:

Young drivers

Roads and Traffic Authority of NSW

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ISBN 978 1921252 563

GPO Box 12

Sydney NSW 2001

The Legislative Assembly

Parliament House

Sydney NSW 2000

The Legislative Council

Parliament House

Sydney NSW 2000

In accordance with section 38E of the Public Finance and

Audit Act 1983, I present a report titled Improving road

safety: Young drivers – Roads and Traffic Authority

of NSW.

Peter Achterstraat

Auditor-General

October 2011

NSW Auditor-General's Report

Improving road safety:

Young drivers

CONTENTS

Executive summary 2

Background 2

Conclusion 2

Supporting findings 2

Recommendations 3

Key findings 10

1. The Graduated Licensing System and Road Safety 10

2. The Learner Licence Period 13

3. The Provisional Licence Period 18

Appendices 24

Appendix 1: Fatal crashes 24

Appendix 2: Licence test pass rates 2005-2010 25

Appendix 3: About the Audit 29

Performance auditing 31

Performance audit reports 32

Contents

NSW Auditor-General's Report

Improving road safety:

Young drivers

EXECUTIVE SUMMARY

Background

The Roads and Traffic Authority (RTA) introduced a revised Graduated Licensing System (GLS) in

July 2000, and since then has introduced further refinements to the licence testing and

regulation of novice drivers.

A novice driver must progress through three phases and four tests before obtaining a full driver’s

licence. The first phase is the learner licence period which requires 120 hours supervised on-road

driving experience over a period of at least 12 months. The second phase is the provisional P1

licence period (at least 12 months), which allows unsupervised driving but with certain

restrictions such as 90km/h speed limit and a zero blood alcohol limit. The third phase is the

provisional P2 licence period (at least 24 months), where some of the restrictions are relaxed such

as a higher speed limit of 100km/h.

The objective of this audit was to assess the effectiveness of the RTA’s driver licence testing and

regulation in ensuring young people (that is drivers under 26 years of age) drive safely. The goal

of the licensing process should be to create drivers who are safe, and not just technically

competent.

Conclusion

The audit concluded that the RTA’s licence testing and regulation has been generally effective in

ensuring the safety of young drivers. There has been a significant reduction in crash and fatality

rates involving young drivers over the last decade, more so than for drivers 26 years and older.

This has coincided with the introduction by the RTA of an enhanced GLS. International and

national research has demonstrated graduated licensing systems to be effective in reducing

crashes and saving lives. However:

• crash and fatality rates involving young drivers remain disproportionately high, and most of

the reduction in fatalities over the last decade has occurred in metropolitan areas

• the extent to which any GLS is effective depends on its component parts, and the RTA’s GLS

could be further refined based on evidence of what has and has not worked elsewhere

• a GLS will not change the behaviour of the minority of young people who drive recklessly

unless they perceive a real risk of being caught and penalised.

Supporting findings

The numbers of fatal and injury crashes involving drivers less than 26 years of age have fallen in

NSW since 1999-2000, and have fallen at a greater rate than for older drivers. Overall, the rate of

fatal crashes involving young drivers declined by 51 per cent between 1999-2000 and 2009-10,

compared with a reduction of 35 per cent for drivers aged 26 years and over. This reduction in

crash rates coincided with the introduction of the RTA’s revised GLS in 2000.

Research evidence both nationally and internationally supports the graduated licensing approach

implemented by the RTA, with restrictions and sanctions that are progressively reduced as

experience is gained.

A number of the RTA’s GLS components have a strong evidence base including the increased

minimum duration for the learner licence, mandating minimum supervised driving hours, zero

blood alcohol concentration limits and increasing the minimum duration for a provisional licence.

Some other GLS components are not well supported by evidence including the current speed

restriction on learner drivers. And there are some other initiatives well supported by evidence that

the RTA has not adopted such as a night time ‘curfew’ for provisional licence drivers in their first

year of driving.

Whilst there has been a significant reduction in fatalities and injuries involving young drivers in

NSW, this has mostly occurred in metropolitan areas. For example, the fatal crash involvement

rate (per licence) for young drivers declined by 68 per cent between 1999-2000 and 2009-10 in

metropolitan areas whereas it has declined by 25 per cent in country areas over the same period.

In recent years young drivers in the country have been around three times more likely to be

involved in a fatal crash than young drivers in metropolitan areas.

Executive summary

NSW Auditor-General's Report

Improving road safety:

Young drivers

EXECUTIVE SUMMARY

Despite improvements in the last decade, young drivers are still more likely to be involved in

crashes that lead to injury or death than the rest of the driving population. They are involved in

around 25 per cent of road fatalities despite making up only 16 per cent of drivers.

Compared with drivers aged 26 years or more, young drivers have a significantly higher incidence

of speed and illegal alcohol involvement in fatal crashes. For example, based on crash data for

2007-08 to 2009-10, 43 per cent of young drivers involved in fatal crashes were judged to be

speeding, compared with only 23 per cent for older drivers involved in fatal crashes.

Some young drivers rapidly accumulate demerit points and those who commit traffic offences,

especially speeding fines, have a significantly increased risk of subsequent crash involvement.

Recommendations

In order to further improve the regulation and testing of young drivers the RTA should:

For learner drivers:

1. by 30 June 2012, determine if the current requirement for a minimum of 120 hours of

supervised practical experience for learner drivers remains appropriate (page 14)

2. by December 2011, increase attendance at educational workshops for learner driver

supervisors through an expanded program, and improved communication and advertising

initiatives (page 15)

3. by 30 June 2013, provide additional support to learner drivers in low socio-economic status

communities and remote areas including subsidised professional instruction, and access to

volunteer mentors and suitable vehicles (page 15)

4. by 30 June 2012, review the current speed restriction for learner drivers, with a view to

increasing it to 90km/h after six months of the learner licence period to ease the transition to

unsupervised driving (page 16)

5. by December 2012, investigate variations in licence test pass rates between testing centres

and, by 30 June 2013, address contributing factors within its control (page 17).

For provisional licence drivers:

6. by 30 June 2012, consider introducing a night-time ‘curfew’ driving restriction for P1 drivers

between 11pm and 5am on Friday and Saturday evenings, and investigating the benefits of a

similar curfew at other times (page 19)

7. by 30 June 2012, consider extending the current passenger restriction for P1 drivers so that

they can carry no more than one peer passenger at any time (page 19)

8. commencing immediately, to enable young drivers improved access to safer second-hand

vehicles, the RTA should strongly advocate for all NSW Government agencies to only

purchase light passenger vehicles with a five star ANCAP rating and light commercial vehicles

with the best available ANCAP rating and specified safety features, including Electronic

Stability Control and head protecting airbags (page 20)

9. by 30 June 2012, consider adding further safe driving elements to the Driver Knowledge,

Hazard Perception and Driver Qualification Tests to better safeguard against unsafe driving

(page 21).

To further reduce risk-taking among young drivers:

10. by 30 June 2012, investigate options to further strengthen sanctions for serious and repeat

offenders (page 23)

11. by 31 December 2012, research the feasibility of using psychological testing for novice

drivers, particularly in respect of serious and repeat offenders (page 23)

12. look at ways of encouraging safer driving behaviour in country areas through:

− by 30 June 2012, directing increased resources to speed and alcohol enforcement in

regional and remote areas at times of high risk for young drivers

− by 31 March 2012, enhancing and extending speed enforcement activity in regional areas

on light passenger and light commercial vehicles through use of point to point camera

technology and mobile units

− by 30 June 2012, address the dangers of alcohol, speeding, fatigue and not wearing a seat-

belt through increased education/advertising campaigns in country areas (page 23).

NSW Auditor-General's Report

Improving road safety:

Young drivers

EXECUTIVE SUMMARY

Response from Roads and Traffic Authority

CE11/282

Mr Peter Achterstraat

Auditor General

GPO Box 12

SYDNEY NSW 2001

Dear Mr Achterstraat

RTA response to the Performance Audit Report – Improving Road Safety: Young

Drivers.

I refer to the Performance Audit Report prepared on Improving Road Safety: Young Drivers.

The Roads and Traffic Authority (RTA) welcomes the analysis of its Graduated Licensing

Scheme and associated programs and regulations introduced to improve road safety for

novice drivers.

The RTA notes this investigation found that in the past 10 years following the introduction of

the New South Wales (NSW) Government’s Graduated Licensing Scheme, there has been a

significant reduction in fatality rates involving young drivers.

Comparing the years 2000 and 2010, the number of drivers aged 25 years or younger

involved in fatal crashes decreased by 47 per cent, from 203 to 107. In the same period the

number of drivers aged 26 years or older involved in fatal crashes decreased by 31 per cent.

While the reduction in young driver related fatalities was greater than for drivers 26 years and

older, the RTA acknowledges young drivers continue to be over represented in crash

statistics. This is not unique to NSW. It is common across Australia and around the world.

The Audit Report acknowledges there are many contributing factors to road crashes and

fatalities involving young drivers. These include risk-taking behaviour, overconfidence, the

carrying of passengers, alcohol and poor hazard perception.

While the Audit reinforces the gains made since the introduction of graduated licensing and

associated programs, the RTA welcomes the identification of additional measures which could

be introduced to further reduce the over-representation of young people in fatalities and

injuries in NSW. The following comments are provided on the recommendations in the Report:

NSW Auditor-General's Report

Improving road safety:

Young drivers

EXECUTIVE SUMMARY

1. By 30 June 2012 the RTA should determine if the current requirement for a

minimum of 120 hours of supervised practical experience for learner drivers

remains appropriate.

The Government is currently reviewing the licence arrangements for learner drivers

and is considering the development of a Safer Driver Course for learner drivers.

2. By December 2011, the RTA should increase attendance at education

workshops for learner driver supervisors through an expanded program,

improved communication and advertising initiatives.

Helping Learner Drivers become Safer Drivers Workshops are currently available to

help supervisors of learner drivers. The free two-hour workshops are delivered to

communities in partnership with local councils. Most participants are parents of young

learner drivers under 25.

The RTA agrees parental involvement in the licensing process is an opportunity for

parents to emphasise and reinforce positive attitudes to safety, laws and licence

restrictions. It also increases parental awareness of youth risk and provides a

supportive framework for the provisional licence phase.

By December 2011, the RTA will increase participation of parents by expanding the

current program delivery through the engagement of school communities. The RTA

will also develop a new communication and promotional strategy by March 2012.

3. By 30 June 2013, the RTA should provide additional support to learner drivers

in low socio-economic communities and remote areas including subsidised

professional instruction, and access to volunteer mentors and suitable

vehicles.

The RTA currently funds Youthsafe, a not-for-profit organisation, to develop injury

prevention programs. Since 2009, Youthsafe has assisted community-based

organisations deliver learner driver mentor programs. This year, Youthsafe will

publish an operational manual for community-based learner driver mentoring

programs. Next year, Youthsafe will provide road safety and program training for up to

10 community-based mentoring programs which provide on-road driving experience

to disadvantaged youth.

The RTA has an Aboriginal Action Plan which aims to improve driver licensing and

vehicle outcomes for Aboriginal people throughout NSW. It includes Aboriginal driver

licensing communication resources, a community based driver knowledge test

program, driver education and a driving instructor program.

To supplement the existing initiatives, in 2012, the RTA will pilot and evaluate a

licensing program to support Aboriginal people in remote areas. A key action

identified for the first three years of the National Road Safety Strategy 2011-2020 is to

implement programs addressing the road safety needs of Indigenous communities

and disadvantaged groups. This includes developing programs to increase

opportunities for driving practice.

The existing programs will provide additional support to learner drivers in low socio-

economic communities. In 2012, the RTA will investigate program support options for

disadvantaged young people to help gain practical on-road driving experience.

NSW Auditor-General's Report

Improving road safety:

Young drivers

EXECUTIVE SUMMARY

4. By 30 June 2012, the RTA should review the current speed restriction for

learner drivers, with a view to increasing it to 90km/h after six months of the

learner licence period to ease the transition to unsupervised driving.

The restriction of 80km/h speed limit for learner drivers is part of the progression of

the NSW Graduated Licensing Scheme. As the learner driver proceeds through the

three licensing phases, the restrictions are progressively reduced.

In NSW, speeding is the key contributing behavioural factor to all road crashes. It is a

contributing factor in 51 per cent of the fatal crashes involving young drivers. The

80km/h speed restriction provides the learner driver with greater control of the vehicle

and a shorter stopping distance if suddenly required to stop. It also provides

increased safety for the learner driver and their passengers and emphasises speed is

the major road safety issue.

The RTA will review the learner driver 80km/h speed restriction with consideration of

whether this change will adversely affect the safety of the learner driver and their

supervisor. The review will examine road safety crash patterns of learner drivers on

high speed roads and effectiveness regarding compliance and enforcement.

5. By December 2012, the RTA should investigate variations in licence test pass

rates between testing centres and, by 30 June 2013, address contributing

factors within its control.

The RTA provides driver testing services state-wide at motor registries and other

service locations such as Government Access Centres and council agencies.

Features at each location are maximised to ensure the test is as robust as possible.

The use of dirt and high speed roads for rural test courses are examples of this.

While considerable effort is made to achieve test uniformity, some variation in delivery

and outcomes will always exist. For example, two metropolitan test locations within

kilometres of each other may have very different traffic conditions or customer bases.

Some motor registries may be located in busy shopping centres, while others may be

in quiet suburban locations. Additionally, some test locations assess a high number of

applicants from non-English speaking backgrounds or low socio-economic

backgrounds, which may affect test pass rates.

Notwithstanding the above issues, the RTA will review licence test pass rates, with a

view to ensuring the test is delivered as consistently as possible.

6. By 30 June 2012, the RTA should consider introducing a night-time ‘curfew’

driving restriction for P1 drivers between 11pm and 5am on Friday and

Saturday evenings, and investigating the benefits of a similar curfew at other

times.

The high level of crashes of young people at night could be a combination of factors

including lack of adult supervision, lower visibility, fatigue, increased independence

and risk taking.

The RTA will investigate the road safety benefits of introducing a night-time ‘curfew’

driving restriction and will consider the social, economic, transport and road safety

impacts of the proposed changes.

NSW Auditor-General's Report

Improving road safety:

Young drivers

EXECUTIVE SUMMARY

Consideration will also be given to community acceptance, social equity issues of

mobility and access and compliance and effectiveness.

7. By 30 June 2012, the RTA should consider extending the current passenger

restriction for P1 drivers so they can carry no more than one peer passenger at

any time.

In July 2007, the RTA introduced a night-time peer-passenger restriction for P1

drivers under the age of 25. The restriction permits only one passenger under the age

of 21 between the hours of 11pm and 5am. This restriction was introduced as part of

a range of young driver reforms that have proven to have road safety benefits.

The RTA will investigate the road safety benefits of extending the current passenger

restrictions and will consider the social, economic, transport and road safety impacts

of the proposed changes. Consideration will also be given to community acceptance,

social equity issues of mobility and access and compliance and effectiveness.

8. Commencing immediately, enable young drivers improved access to safer

second-hand vehicles, the RTA should strongly advocate for all NSW

Government agencies to only purchase light passenger vehicles with a five star

ANCAP rating and light commercial vehicles with the best available ANCAP

rating and specified safety features, including Electronic Stability Control and

head protecting airbags.

The RTA welcomes this recommendation about safer vehicles in government fleets.

Safer vehicles provide long-term road safety benefits. As recognised by the Audit

Report, fleet vehicles are on-sold to the public, commonly becoming the vehicle used

by a family and often used by a novice driver. The added safety features can help

avoid or reduce the severity of a crash and improve the protection of the vehicle’s

occupants.

The RTA fleet purchasing policy already requires light passenger vehicles to meet 5

Star ANCAP safety requirements and for light commercial vehicles, a 4 Star ANCAP

safety rating is required, with the additional safety features of electronic stability

control and/or head protecting side airbags wherever available for the particular

vehicle type.

The NSW Centre for Road Safety is currently working with StateFleet Services to

encourage the introduction of these minimum safety standards as mandatory for all

government vehicles. This policy is also being promoted to industry through a range

of channels, including via the Australasian Fleet Manager’s Association and various

industry presentations.

9. By 30 June 2012, the RTA should consider adding further safe driving elements

to the Driver Knowledge, Hazard Perception and Driver Qualification tests to

better safeguard against unsafe driving.

The Hazard Perception Test is a computer touch-screen test using video footage

taken from a driver’s perspective of situations which commonly involve provisional

drivers in crashes.

NSW Auditor-General's Report

Improving road safety:

Young drivers

EXECUTIVE SUMMARY

The purpose is to ensure P1 drivers have the necessary hazard perception skills to

progress to the next class of licence. The test was extensively researched by road

safety experts before development.

The RTA is currently developing a long term plan to review the video footage for the

Hazard Perception Test and the Driver Qualification Test.

Both the RTA Driver Knowledge Test and the Driver Qualification Test contain

question and answer sections focusing on safe driving strategies and practice. The

RTA will review the questions in both tests and consider the addition of further

questions about safe driving.

10. By 30 June 2012, the RTA should investigate options to further strengthen

sanctions for serious and repeat offenders.

As part of the Road Toll Response Package, a repeat offender strategy is being

developed via an evidence based approach. Research is being carried out to profile

repeat offenders and to identify successful international and interstate programs.

11. By 31 December 2012, the RTA should research the feasibility of using

psychological testing for novice drivers, particularly in respect of serious and

repeat offenders.

While there is currently no known suitable psychological test to be used in the driver

licensing context, the RTA will carry out further research in this area, particularly in

relation to serious and repeat offenders.

12. The RTA should look at ways of encouraging safer driving behaviour in country

areas through:

• By 30 June 2012, directing increased resources to speed and alcohol

enforcement in regional and remote areas at times of high risk for young

drivers.

• By 31 March 2012, enhancing and extending speed enforcement activity in

regional areas on light passenger and commercial vehicles through use of

point to point camera technology and mobile units.

• By 30 June 2012, address the dangers of alcohol, speeding, fatigue and not

wearing a seatbelt through increased education/advertising campaigns in

country areas.

The RTA strongly agrees the key risk behaviours contributing to road crashes for all

motorists, including young drivers under 25, are speeding, drink driving, the non-use

of seatbelts and driver fatigue.

Education and public education campaigns to address the key risk behaviours and

attitudes of drivers are critical to safe driving and reducing road trauma. The RTA has

an ongoing commitment to deliver public education and campaigns on critical issues

throughout New South Wales and will continue to do so.

NSW Auditor-General's Report

Improving road safety:

Young drivers

EXECUTIVE SUMMARY

In January 2011, the RTA launched a new seatbelt public awareness campaign

across all media. The campaign primarily targeted rural male drivers but also

addressed all drivers and passengers in country non-urban and regional towns. The

campaign’s tagline “Clip Every Trip” provides a friendly reminder about seatbelt use

but also emphasises a seatbelt doubles the chance of survival in a serious crash and

reduces the death and injury related to road trauma.

This campaign will continue into the 2011-2012 financial year and the RTA will

provide support resources to encourage the delivery of campaign messages through

local councils. The RTA will explore options to target young audiences through a

cinema strategy in regional locations.

The RTA is currently developing a new state-wide drink driving campaign targeting

males. The primary target group will be young licence holders (17-25 years). While

country locations are over-represented in drink-driving crashes, metropolitan crashes

still represent a significant number of drink driving crashes.

The current fatigue campaign entitled Wake Up to the Signs on television and radio

will be aired in country NSW at peak holiday periods of Christmas and Easter. The

campaign will be expanded to youth communication mediums.

An initiative of the Youthsafe injury prevention project funded by the RTA has been

the development of a new education resource Plan 2 for educators and professionals

working with young people. The DVD and on-line resource helps young people

explore options and develop strategies for travelling as drivers, passenger,

pedestrians and cyclists. The RTA will fund Youthsafe to conduct professional forums

for rural professionals working with rural youth.

The issues of speed and fatigue are currently addressed through the RTA's Don’t

Rush television, radio and outdoor public education campaign. This campaign

reinforces the crash consequences of speeding and fatigued driving by highlighting

the human and emotional costs associated with unsafe driving behaviours. In 2011,

this campaign will continue to be delivered state-wide with elements directly targeting

young people using a range of communicational approaches. These include online

advertising links and updates to Facebook and the SpeedBlitz Blues’ Slow Down

Pledge. The RTA will continue to deliver key messages to young people through the

SpeedBlitz Blues presentations in schools and the RTA’s Slow Down Road Show

visual displays at major events and shopping centres.

Thank you for the opportunity to comment on this report.

Yours sincerely

NSW Auditor-General's Report

Improving road safety:

Young drivers

KEY FINDINGS

1. The Graduated Licensing System and Road Safety

Graduated licensing systems allow beginners to get their initial experience under conditions that

involve lower risk and introduce them in stages to more complex driving situations. The RTA

introduced a revised graduated driver licensing system in New South Wales in 2000, with

significant additions between 2004 and 2008.

These refinements included:

May 2004 – zero blood alcohol limit for learner and provisional licence holders

July 2005 – vehicle restrictions for provisional drivers (P1 and P2).

July 2007 –

• zero tolerance for speeding for provisional P1 drivers and riders

• ban on hands-free or handheld mobile phones for learner and provisional P1 drivers

• peer passenger restriction of one passenger for P1 drivers between the hours of 11pm and

5am

• requirement of a minimum of 120 mandatory hours of supervised on-road driving experience

recorded in a RTA learner driver log book

• new more extensive on road driving test.

Exhibit 1: The NSW Graduated Licensing System for Young Drivers

Source: NSW Audit Office 2011 from information provided by the RTA

The system also includes:

• a log book arrangement requiring documentation of completion of the required minimum

hours of supervised driving for learner drivers

• speed limits for novice driver licences classes: learner licence (80 km/h), provisional P1 licence

(90 km/h), and provisional P2 licence (100km/h)

• licence suspension of three months for any speeding offence by a P1 provisional driver.

The introduction of the RTA’s revised GLS coincided with a significant reduction in crash and

fatality rates involving young drivers over the last decade, more so than for drivers 26 years of

age and older. Fatal crash involvement rates for young drivers declined by 51 per cent from

1999-2000 to 2009-10, compared with a reduction of 35 per cent for drivers aged 26 years and

over. However, young drivers are still 65 per cent more likely to be involved in a fatal crash than

drivers aged 26 years and over.

Key findings

Driver knowledge test

(minimum age 16 years)

Learner period - at least 120

hours supervised on road

experience including 20 hours of

night driving (minimum 12

months)

On-road driving test

(minimum age 17

years)

Provisional Licence P1

with associated

restrictions (minimum

12 months)

Hazard perception test

(minimum age 18 years)

Provisional Licence P2

with associated

restrictions (minimum

24 months)

Driver qualification test

(minimum age 20 years)

Full licence

Fatal crash

involvement

rates for young

drivers have

declined by

51 per cent

Fatal crash

involvement

rates for young

drivers have

declined by 5

per cent

NSW Auditor-General's Report

Improving road safety:

Young drivers

KEY FINDINGS

Fatal crash involvement rate reductions since 1999-2000 have been greatest in metropolitan

areas, with more modest improvements in country areas. The reduction in metropolitan areas

was 68 per cent for young drivers compared with 53 per cent for drivers aged 26 years and over.

The reduction in country areas was 25 per cent for young drivers compared with ten per cent for

older drivers.

Exhibit 2: Fatal crash involvement rates in metropolitan areas by age of driver

Based on data provided by the RTA 2011

Notes: 2009-10 data is provisional

The metropolitan area is defined as the Sydney, Newcastle and Wollongong greater conurbation areas – this includes the

Sydney, Newcastle and Wollongong metropolitan areas as well as the Wyong, Gosford, Hawkesbury, Blue Mountains and

Wollondilly local government areas. The country area is defined as the rest of the State.

Exhibit 3: Fatal crash involvement rates in country areas by age of driver

Based on data provided by the RTA 2011

Note: 2009-10 data is provisional

The above exhibits also show that in recent years young drivers in the country have been around

three times more likely to be involved in a fatal crash than young drivers in metropolitan areas.

99/00 00/01 01/02 02/03 03/04 04/05 05/06 06/07 07/08 08/09 09/10p

Under 26

2.3 1.9 1.7 1.8 1.5 1.6 1.5 1.1 0.9 1.1 0.7

26 plus

1.0 0.8 0.8 0.6 0.6 0.7 0.6 0.5 0.4 0.4 0.5

Fatal crashes per 10,000 drivers

Under 26 26 plus

99/00 00/01 01/02 02/03 03/04 04/05 05/06 06/07 07/08 08/09 09/10p

Under 26

3.9 4.4 4.1 3.3 5.0 3.7 3.2 3.4 3.0 2.9 3.0

26 plus

1.9 1.9 2.1 1.9 2.1 1.8 1.8 1.7 1.3 1.6 1.7

Fatal crashes per 10,000 drivers

Under 26 26 plus

Young country

drivers are over

three times

more likely to

be involved in

a fatal crash

than young

metropolitan

drivers

Young country

drivers are

around three

times more likely

to be involved in

a fatal crash

than young

metropolitan

drivers

NSW Auditor-General's Report

Improving road safety:

Young drivers

KEY FINDINGS

Injury crash involvement rates have also declined since 1999-2000. The rates have declined by

30 per cent for young drivers and 18 per cent for drivers aged 26 years and older.

The decline has been greatest in metropolitan areas with a 33 per cent reduction in the injury

crash involvement rate for young drivers compared with a 19 per cent reduction for drivers aged

26 years and older. The decline in country areas has been 21 per cent for young drivers and

14 per cent for drivers aged 26 years and older.

Exhibit 4: Injury crash involvement rates in metropolitan areas by age of driver

Based on data provided by the RTA 2011

It should be noted that young country drivers are still around two and a half times more likely to

be involved in a crash involving injury than country drivers 26 and over.

Exhibit 5: Injury crash involvement rates in country areas by age of driver

Based on data provided by the RTA 2011

The numbers of fatal and injury crashes involving drivers under 26 years of age are contained in

Appendix 1.

99/00

00/01

01/02

02/03

03/04

04/05

05/06

06/07

07/08

08/09

09/10

Under 26

134.1 144.4 148.9 135.8 127.5 120.1 111.9 113.2 98.4 93.7 89.3

26 plus

60.6 64.0 67.2 62.3 59.6 58.9 56.3 58.5 53.5 51.3 49.1

100

120

140

160

Injury crashes per 10,000 drivers

Under 26 26 plus

99/00

00/01

01/02

02/03

03/04

04/05

05/06

06/07

07/08

08/09

09/10

Under 26

110.8 116.2 115.6 112.7 109.4 97.6 98.7 94.4 94.1 86.0 88.0

26 plus

40.9 41.9 43.7 41.5 39.2 38.3 35.4 36.3 36.1 35.5 35.0

100

120

140

160

Injury crashes per 10,000 drivers

Under 26 26 plus

The rate of

injury crashes

involving young

drivers has

fallen by

30 per cent

The rate of

injury

crashes for

young

drivers has

fallen by 30

per cent

NSW Auditor-General's Report

Improving road safety:

Young drivers

KEY FINDINGS

The higher crash risk of young, newly licensed drivers appears to result from a combination of

age factors and a lack of driving experience. Young drivers are more likely to engage in a range

of risky behaviours such as speeding and driving at times that are more dangerous such as late at

night and with young passengers in their vehicle.

International and national research has demonstrated graduated licensing systems to be effective

in reducing crashes and saving lives. Graduated licensing was introduced to North America in the

late 1970s. Early evaluations demonstrated that the systems are associated with significant crash

reductions, with at least some of the reduction due to a reduced level of driving. GLS evaluations

carried out in the US, Canada, New Zealand and Australia, showed crash reductions among

young first-year drivers ranging from 26 to 41 per cent.

Graduated licensing systems introduced overseas generally have the following features:

• extended supervised learning periods and practice

• late night driving restrictions, with exemptions

• passenger restrictions, with exemptions

• early intervention for traffic offending through a lower demerit point threshold

• progression through licensing stages contingent on good driving records

• zero blood alcohol concentration (BAC) limits and compulsory seat belt wearing.

The extent to which any GLS is effective depends on its component parts. A number of the

RTA’s GLS components have a strong evidence base including the increased minimum duration

for the learner period, mandated minimum supervised driving hours, zero BAC limits and an

increased minimum period for a provisional licence. The RTA’s GLS could, however, be further

refined based on evidence of what has and has not worked elsewhere.

There is also a small minority of young people who will drive recklessly, unless they perceive a real

risk of being caught and penalised. Therefore, additional programs and sanctions should be

considered for these drivers.

Components of the GLS, and enforcement and sanctions are discussed in the following chapters.

2. The Learner Licence Period

Young people who want to drive must first obtain a learner licence which is valid for five years.

To obtain this licence a young person must be 16 years of age or older and sit a theory test

known as the Driver Knowledge Test (DKT).

The DKT is a computer-based road rules knowledge test. Participants must answer 45 questions

which the computer selects at random from a question bank of more than 600. The test is based

on information contained in the Road User Handbook, which includes practical information on

NSW road rules and safe driving practice. The test includes questions on general road rules,

traffic signs and safe driving and makes extensive use of photographs and graphic images of

traffic situations. Victoria, South Australia and Tasmania use a similar test.

The GLS currently requires a learner driver under 25 years of age to undertake 120 hours of

supervised driving experience which includes 20 hours of night time driving. One hour of

professional driving instruction can be recorded as three hours in the log book up to a maximum

of 30 hours (i.e. ten hours professional instruction).

A large number of hours of driving experience in a range of conditions make a significant

difference to the safety of young drivers. Swedish research showed that learners who received

about 118 hours of supervised experience had up to 35 per cent fewer crashes than those who

received 41 to 47 hours.

There has been considerable debate amongst key stakeholders and researchers regarding the

exact amount of practical experience required during the learner driver phase. NSW has the

toughest supervised driving requirement of any Australian State. Victoria also has 120 hours but

this only applies to learner drivers under 21 years of age. Queensland has 100 hours and its night

driving requirement is ten hours.

A large

amount of

practical

driving

experience is

needed

Graduated

licensing

systems

reduce

crashes and

save lives

RTA’s GLS

could be

further

refined

NSW Auditor-General's Report

Improving road safety:

Young drivers

KEY FINDINGS

Recommendation

The RTA should determine if the current requirement for a minimum of 120 hours of supervised

practical experience for learners remains appropriate.

The provision of effective training is essential to developing safe young drivers. There is no

compelling evidence to suggest, however, that novice drivers who receive instruction from a

professional driving instructor are any safer as a solo driver than those drivers who have been

supervised by their parents. Parents may be better able to influence the behaviour and attitudes

of young drivers while they are learning, reducing the likelihood they will engage deliberately in

unsafe behaviours when they begin solo driving.

There is considerable evidence that driver training that attempts to impart advanced skills to

young, recently licensed drivers actually increases crash risk. Research in both Scandinavia and the

U.S has indicated that young people who take such courses, particularly young men, have more

crashes subsequently than comparable people without training. The higher crash rates are

thought to be largely the result of over confidence and showing off.

Research has also shown that registered racing drivers tend to be involved in more on-road

crashes and traffic violations than other drivers of the same age and gender. Again, this suggests

driver safety may be less about mechanical skills in manoeuvring a vehicle than attitude,

behaviour and risk-taking propensity.

The majority of fatal crashes involving young drivers in NSW involve risk-taking including

speeding, illegal blood alcohol concentration or not wearing a seat belt, further illustrating that

the right attitude and behaviour are fundamentally important. Since 2005-06, sixty five per cent

of learner driver fatalities and 55 per cent of provisional P1 driver fatalities involved risk-taking

behaviour.

Driving experience is important to protect young drivers. Parent/friend driving supervisors can

significantly influence the quality of the training and may also influence the attitude of young

drivers. There is ample evidence attesting to the benefits of parental involvement in young driver

safety. However, parental behaviour with regard to the licensing and early driving of a young

person is affected by the amount of time parents have available, their motivation to be involved,

parenting styles, and knowledge about relevant road safety issues. Parents play a critical role in

ensuring their children undertake the necessary driving practice hours to become safer drivers.

Education for parent/friend supervisors of learner drivers is an important GLS consideration.

Research suggests that parents do not always understand novice driving risks well, being aware

of their increased risk in general, but not in relation to specific situations such as driving at night

and with peer passengers. Therefore, education for parents as well as novice drivers is considered

beneficial in order to maximise the effectiveness of the GLS.

A recent study in the U.S.

recommended that parents/guardians be required to attend a novice driver orientation program

with the young person they are going to supervise.

The RTA has acknowledged the importance of parent/friend supervisors in the development of

safe novice drivers. The RTA provides guidance for lay supervisors in its Learner Driver’s Logbook

supplemented by Helping Learner Drivers Become Safer Drivers workshops. The two-hour

workshops, delivered by local government road safety officers (and funded by the RTA) offer

parents and supervisors practical advice including:

• how to use the learner driver logbook

• how to plan supervised on-road driving experience and professional driving instruction

• how to deal with difficulties that may arise during driving practice

• the importance of giving the learner driver constructive feedback.

Parent/friend

supervisors

need more

guidance

Advanced

driver training

can increase

the risk of

crashing for

novice drivers

NSW Auditor-General's Report

Improving road safety:

Young drivers

KEY FINDINGS

The RTA advised that participant feedback has been positive and that participants feel they gain

increased confidence in being a supervisor, as well as increased understanding and awareness of

the learner log book requirements and strategies to share with their learner.

However, attendance at the workshops is voluntary and there seems to be a low attendance rate.

For example, one Council highlighted this lack of participation by indicating that the workshops

were attended by approximately 60 parents in 2008 yet there were 4,933 learner drivers in the

area.

Recommendation

The RTA should increase attendance at educational workshops for learner driver supervisors

through an expanded program, and improved communication and advertising initiatives.

Young novice drivers in rural areas do not have the same level of access to driver training and

education as their metropolitan counterparts. In addition, the cost of professional driving tuition

operates as a barrier to learner drivers from lower socio-economic and indigenous backgrounds

in all areas of NSW. The issue of additional support is particularly critical for those young drivers

with only limited access to extended practice during the learning period.

Recommendation

The RTA should provide additional support to learner drivers in low socio-economic status

communities and remote areas including subsidised professional instruction, and access to

volunteer mentors and suitable vehicles.

The minimum term for a learner licence in NSW is 12 months if the learner is under 25 years of

age. This is similar to Queensland and Victoria (for drivers under the age of 21 years) and

designed to be sufficient to allow the required hours of supervised driving experience.

There are a range of restrictions on learner drivers including:

• zero blood alcohol concentration (BAC)

• demerit points – four or more demerit point results in a three month suspension

• speed restriction of 80km/h

• supervision – must be seated next to a person who has an appropriate Australian full licence

• mobile phones – not use any functions of a mobile phone including hands-free devices.

A learner driver can be suspended by the RTA for offences such as:

• driving without a supervising driver.

• the learner driver or passengers are not restrained by seatbelts or child restraints.

• driving with a passenger(s) in the boot or on the vehicle.

There is a significant body of research supporting the restrictions on alcohol consumption and

mobile phone use for young drivers. Most other Australian States have the similar restrictions in

place. There is also evidence of the benefits of tougher demerit point systems for young drivers.

As previously stated, learner drivers are currently restricted to a speed limit of 80km/h, ten less

than P1 licensed drivers. However learner drivers are 20 to 30 times less likely to be involved in a

serious crash than P1 licensed drivers. The graph below illustrates the increased risk associated

with moving from a supervised driving environment to independent driving.

Country and

low socio-

economic

learners

need more

support

NSW Auditor-General's Report

Improving road safety:

Young drivers

KEY FINDINGS

Exhibit 6: Learners, P1 and P2 Driver Involvements in Recorded Crashes in NSW,

2006 to 2010, Number of Months Since Obtaining Licence Level

Source: The RTA 2011

Notes: The minimum period for learner licence is 12 months; the minimum for provisional P1 licence is 12 months; and

the minimum for provisional P2 licence is 24 months.

The current speed restriction on learner drivers prevents them from obtaining the benefit of

supervised practice at 90km/h. Yet once they pass their driving test they can travel at this speed

when the risk factors can be much greater (for example, unsupervised and with peer passengers).

Stakeholders have also indicated that learner drivers on high speed roads can present as a

moving road block to other drivers who may not be sympathetic and may vent their frustrations

through risk-taking behaviour. According to some researchers, the benefit of imposing such a

speed restriction is, at best, lacking empirical support. NSW is the only mainland Australian State

with a learner speed limit less than 100km/h.

Recommendation

The RTA should review the current speed restriction for learner drivers, with a view to increasing

it to 90km/h after six months of the learner licence period to ease the transition to unsupervised

driving.

Once young drivers have completed the required driving experience they must pass an on-road

driving test to obtain their P1 licence.

A new driving test was introduced in 2007. The RTA appears to have gone through a robust

process to develop, trial and implement the new test. The RTA indicated that the test focuses on

assessing hazard perception skills and has been designed for learners with extensive driving

experience.

The test consists of set performance checks on a set test course. Testing officers mark whether

the applicant did or did not meet the scoring criteria. This reduces the need for subjective

judgments by the testing officer. During the test a testing officer in the car directs the learner

driver on where to drive and assesses the driver against five key performance areas: speed

management; road positioning; decision making; responding to hazards and vehicle control.

There is significant variation in driving test pass rates between some testing centres and pass

rates are generally higher in the country than the metropolitan areas. The average pass rates

ranged from 91 per cent at the Narooma registry to 43 per cent at the Maroubra registry in for

the period 2005 to 2010.

100

200

300

400

500

600

700

800

900

1000

1 3 5 7 9 11 1 3 5 7 9 11 1 3 5 7 9 11 13 15 17 19 21 23

Number of drivers involved in recorded

crashes

Number of months

Learner P1 P2

P1 drivers

have the

highest

crash rates

Significant

variation in

driving test

pass rates

between

registries

NSW Auditor-General's Report

Improving road safety:

Young drivers

KEY FINDINGS

Exhibit 7: Average pass rates for top and bottom five metropolitan and country licence

testing centres - 2005 to 2010

Regional

Testing centre Rate Rate

NAROOMA MOTOR REGISTRY 91% LAKE CARGELLIGO COUNCIL AGENCY 51%

BEGA MOTOR REGISTRY 90% WELLINGTON MOTOR REGISTRY 55%

CROOKWELL COUNCIL AGENCY 86% MERRIWA COUNCIL AGENCY 55%

BATEMANS BAY MOTOR REGISTRY 84% WAGGA WAGGA MOTOR REGISTR 56%

BOMBALA COUNCIL AGENCY 84% RAYMOND TERRACE MOTOR REGISTRY 56%

Metropolitan

Testing centre Rate Rate

SHELLHARBOUR MOTOR REGISTRY 76% MAROUBRA JUNCT MOTOR REGISTRY 43%

CORRIMAL MOTOR REGISTRY 73% WETHERILL PARK MOTOR REGISTRY 46%

UNANDERRA MOTOR REGISTRY 72% GOSFORD MOTOR REGISTRY 46%

ENGADINE MOTOR REGISTRY 71% LIDCOMBE MOTOR REGISTRY 48%

THE ENTRANCE MOTOR REGISTRY 70% SILVERWATER MOTOR REGISTRY 49%

Source: The RTA 2011

Appendix 2 contains a list of testing centres with the corresponding average pass rate for each

centre for the period 2005 to 2010.

In order to meet community expectations and customer service obligations, the RTA delivers

driver testing in approximately 200 locations across NSW including registries and council centres.

The RTA advises that registry pass rates are likely to be influenced by socio-economic and

demographic factors such as non-English speaking background and educational attainment. In

country areas, some young people may have had extensive driving experience on farms before

they began driving on roads. And some registries are located in busy areas with complex traffic

environments whereas others are not.

The RTA indicated that pass rates can also be influenced by factors within its control. These

include the driving test procedure, the judgement of testing officers and the testing routes used.

The RTA advises that it has a quality assurance system that which includes training, monitoring

and review of testing officers, and random allocation of test courses and testing officers. It also

advised that it proposes to restructure its driver testing operational support areas, introducing

specialist training and audit units to focus on improved consistency of training, quality assurance

and overall service delivery.

The RTA, however, needs to better understand the causes of the current significant differences in

pass rates between registries so it can target its improvement efforts.

Recommendation

The RTA should investigate variations in licence test pass rates between testing centres and

address contributing factors within its control.

We do not think the variation in test results has been a significant factor in the higher rate of

crashes and fatalities in rural areas we discussed earlier. The RTA provided data on crash rates by

Local Government Area (LGA) and this showed no particular correlation to the pass rates of the

registries in them. For example, of the 20 regional licence testing centres with the highest pass

rates, half of their LGA’s were above the regional average whilst half were below the regional

average.

Also, a limited duration, on-road test has inherent limitations in predicting subsequent driving

attitudes and behaviours despite these being key factors in crashes. In fact, the inherent

limitations of any such test is a key reason for the introduction of a GLS.

NSW Auditor-General's Report

Improving road safety:

Young drivers

KEY FINDINGS

3. The Provisional Licence Period

Most young drivers are not involved in serious crashes and do not indulge in reckless behaviour.

Mobility is important to them, especially to young country drivers who lack public transport

options and cover greater distances than young metropolitan drivers.

Research clearly shows that young drivers are most at risk of crashing in the first six to 12 months

of obtaining their provisional licence. This reflects a number of factors, including:

• a tendency to be overconfident and a greater susceptibility to distraction

• a greater propensity to take risks and engage in attention seeking, especially among young

males

• a lack of driving experience

• under-developed information processing and decision-making skills.

Young males are also generally less able to handle stress and more likely to become frustrated

and act/react aggressively to a range of situations. Young male drivers are responsible for a

greater number of crashes and up to three times the number of crash fatalities on the road.

Younger provisional P1 licence drivers are generally more likely to crash than drivers who get their

provisional P1 licence later. For example, research provided by the RTA indicates that drivers who

obtain their provisional P1 licence at 17 years of age are around 30 per cent more likely to be

involved in a fatal crash during their P1 licence period than drivers who get their provisional P1

licence at 18 years of age.

To try to improve the safety of provisional P1 licence drivers, the RTA has a range of restrictions in

place including:

• a zero blood alcohol concentration

• a maximum speed limit of 90 km/h

• if aged less than 25 years, may carry only one passenger under the age of 21 between 11pm

and 5am

• not use any functions of a mobile phone including hands-free devices

• not drive certain prohibited vehicles.

• must not incur four or more demerit points during the term of the licence.

Most of the RTA restrictions on provisional P1 drivers are based on strong evidence. As previously

indicated, alcohol and mobile phone restrictions on novice drivers are well supported by research.

Young drivers are more susceptible to the effects of alcohol on their driving, have lower night

driving skills and are more likely to speed excessively than older, more experienced drivers.

Late night driving substantially increases the risk of an inexperienced driver crashing. Young

drivers (particularly male) have very much higher crash rates at night, particularly on the

weekend. For Australian drivers aged 18 to 24 years old, crashes at night and single vehicle

crashes were more serious in comparison with older drivers. Over a third of fatal crashes involving

young drivers occur on Friday and Saturday evenings.

NSW research indicates that risks increase for young drivers with multiple passengers, particularly

during late evening and early morning. A review of the 2001-02 to 2003-04 data found that

young drivers with two or more occupants were over three times more likely to be involved in a

fatal crash during these times.

The RTA acknowledged the risks for novice drivers of night-time driving and peer passengers by

introducing a combined night driving and passenger restriction in 2007. RTA has also indicated

that there was significant community opposition to the potential introduction of a night-time

‘curfew’ driving restriction. But there is strong evidence-based safety benefits associated with

extending the current passenger restriction and introducing a night-time curfew for P1 licence

drivers. Victoria introduced a passenger restriction in July 2008 permitting P1 licence drivers to

carry no more than one passenger aged between 16 and 21.

Greater novice

driver crash

risk at night

and with

passengers

NSW Auditor-General's Report

Improving road safety:

Young drivers

KEY FINDINGS

Recommendations

The RTA should:

• Consider introducing a night-time ‘curfew’ driving restriction for P1 drivers between 11pm

and 5am on Friday and Saturday evenings, and investigating the benefits of a similar curfew

at other times

• Consider extending the current passenger restriction for P1 drivers so that they can carry no

more than one peer passenger at any time.

The RTA has vehicle restrictions in place for young drivers. P1 and P2 drivers must not drive a

vehicle with:

• eight or more cylinders (except diesel)

• a turbocharged or supercharged engine (diesel powered engines exempt)

• modifications that increase engine performance

• any other vehicle identified by the RTA as a high risk including some high performance six

cylinder cars.

High performance vehicle (HPV) restrictions for provisional drivers are also in place in Victoria,

Queensland and South Australia.

The RTA has indicated that there is strong community support for HPV restrictions. However

there is limited evidence to support a vehicle restriction for novice drivers. Less powerful vehicles

may accelerate less quickly but are still capable of exceeding the speed limit. Research has

indicated that provisional drivers who drive high-performance vehicles were not found to present

a greater crash risk.

Western Australia does not currently have vehicle restrictions on novice drivers. The Western

Australian Office of Road Safety has recently commissioned a review by Curtin University to

investigate the relationship between vehicle performance factors, age of driver and the risk of

serious injury crash involvement. This review will assist in determining whether vehicle restrictions

should be introduced in Western Australia and is scheduled for completion by March 2012.

Austroads’ Licensing & Registration Task Force has a national working group investigating the

creation of national criteria for high performance vehicle restrictions for provisional drivers. It

largely follows the current NSW model, but proposes to base restrictions on a vehicle’s power-to-

weight ratio, and remove other factors, such as number of cylinders or turbocharging. This is

necessary to keep abreast of technological advances whereby small, safe cars are fitted with

turbochargers to improve their emission performance. This will allow a greater range of safer

vehicles to be used by provisional drivers. The RTA has indicated that it will evaluate the results of

the investigation with a view to adopting the new criteria.

Young drivers generally drive cheaper, older cars. The risk of death or serious injury in a crash is

lower for later model vehicles. For example, the risk in a vehicle made in 2007 is about half that

of a vehicle made in 1987. This problem is compounded in rural and regional areas where the

average age of the motor vehicle is 12.1 years, compared to 9.6 years in metropolitan areas.

Because of the cars they are driving, young people have an average 11 per cent greater risk of

death or serious injury if they have a crash. For young women, the risk is greatest, with the type

of car they are driving increasing the risk of death or serious injury in a crash by more than 13 per

cent (compared with 10 per cent for young men).

Clearly, Governments need to find ways of accelerating safety improvements in Australia’s vehicle

fleet, realising that new vehicle safety features currently take many years to reach the majority of

Australian motorists.

Young people

generally

drive less safe

cars

NSW Auditor-General's Report

Improving road safety:

Young drivers

KEY FINDINGS

To assist Australians in making safer vehicle choices, the Australasian New Car Assessment

Program (ANCAP) provides consumers with independent information on the comparative level of

protection provided by new light vehicles (cars and light commercials) in the event of a serious

crash based on controlled crash testing. The Used Car Safety Ratings also provide comparative

safety data obtained from ‘real world’ crashes. The RTA also assists young people select safer

cars. For example, the RTA’s GEARED website provides general information on vehicle safety as

well as links to new and used motor vehicle safety ratings.

Nevertheless, the National Road Safety Strategy 2011-2020 highlights the lack of awareness in

the community of the importance vehicle safety ratings have on crash outcomes. The Strategy,

released on 20 May 2011 by the Australian Transport Council, outlines broad directions for the

future of Australian road safety.

The Strategy includes in its actions for the next three years the need to:

• develop nationally-agreed fleet purchasing policies with practical, evidence-based safety

criteria that drive an increase in the safety features required for vehicle purchases.

• require all government fleets to implement nationally-agreed fleet purchasing policies and

encourage adoption by other fleet operators.

A large proportion of new vehicles in Australia are purchased for government fleet use. As these

vehicles are generally sold for private use within a few years, there is an opportunity to improve

the uptake of safety features in Australian vehicles by encouraging fleet purchasers to demand

them. This will ultimately enable young drivers improved access to safer second-hand vehicles.

Recommendation

To enable young drivers improved access to safer second-hand vehicles, the RTA should strongly

advocate for all NSW Government agencies to only purchase light passenger vehicles with a five

star ANCAP rating and light commercial vehicles with the best available ANCAP rating and

specified safety features, including Electronic Stability Control and head protecting airbags.

Young drivers must pass a Hazard Perception Test (HPT) to progress from a P1 to a P2 licence.

The HPT involves a touch-screen computer-based test that measures a young driver’s ability to

recognise potentially dangerous situations on the road and react appropriately. The test presents

applicants with film footage of real traffic situations, shown from the driver’s viewpoint.

Research shows that hazard perception skills are important for safe driving and that drivers with

poor hazard perception skills usually have more crashes. Research also shows that screen-based

hazard perception tests can detect drivers with a higher risk of crash involvement.

A 2010 analysis by a leading expert found that the RTA’s HPT test is operating as intended and

successfully discriminates between higher and lower crash risk drivers.

Once young drivers have successfully completed the P1 driving period and passed their hazard

perception test they can progress to a P2 licence. To try to improve the safety of provisional P2

licence drivers, the RTA has a range of restrictions in place including:

• a zero blood alcohol concentration

• a maximum speed limit of 100 km/h

• not drive certain prohibited vehicles

• a licence suspension for a minimum of three months for two speeding offences

• must not incur seven or more demerit points during the term of the licence.

The gradual reduction in restrictions is consistent with research on the safety of young drivers

and the features of effective graduated licensing systems.

Provisional drivers must retain their P2 licence for at least 24 months before progressing to a full

licence. Victoria has a three year period with the requirement for a good driving record.

Queensland and Tasmania have a two year P2 period if the driver is younger than 23 years of

age.

NSW Auditor-General's Report

Improving road safety:

Young drivers

KEY FINDINGS

Following completion of the provisional P2 licence period drivers must undertake a

computer-based Driver Qualification Test (DQT) to progress to a full licence. The test assesses

whether P2 drivers have sufficient safe driver knowledge and hazard perception skills to graduate

to an unrestricted licence. It consists of two parts:

• questions on advanced safe driving knowledge

• a hazard perception test.

A recent external review of the RTA’s DQT concluded that the DQT is operating as an effective

‘exit test’ and contributing to risk reduction under the RTA’s GLS. There is evidence to indicate

that the DQT is a reasonable predictor of safe driving skills and attitude. Provisional P2 drivers

who passed the DQT on their first attempt are generally the safest, with those who failed the first

attempt being 16 per cent more likely to crash within one year.

The 2010 review also concluded that the questions on advanced safe driving knowledge were

particularly effective in screening out unsafe drivers. The review indicated that the supporting

material for the DQT contains information that may assist young drivers in reducing risks. This

suggests that there may be scope to increase the emphasis on safe driving testing knowledge in

the RTA’s other theory tests.

Recommendation

The RTA should consider adding further questions about safe driving to the Driver Knowledge,

Hazard Perception and Driver Qualification Tests to better safeguard against unsafe driving.

Research indicates that many crashes involving young drivers result from inexperience and poor

decision-making, rather than deliberate risk-taking on behalf of young drivers. Most novice

drivers involved in fatal crashes do not have prior traffic violations or records and are not readily

distinguishable from other drivers. The RTA is involved in a major research project to further

reduce the road toll amongst young drivers. Such large scale research is costly and time

consuming but the potential benefits are great.

Exhibit 8: P Driver Project

The RTA is currently involved in a large scale road safety research project, called the P Driver

Project, to develop and implement a trial education program for novice drivers aged between

17 to 22 years.

The project aims to:

• reduce the number and severity of road crashes involving young novice drivers

• improve safe driving behaviour of young novice drivers

• increase awareness of the risk factors that contribute to high crash rates for young drivers.

The project is a joint initiative of the Federal, NSW and Victorian governments as well as the

Transport Accident Commission of Victoria, Royal Automobile Club of Victoria, Insurance

Australia Group and the Federal Chamber of Automotive Industries. The RTA advises the

project is on schedule for commencement in October 2011, when the first of the 28,000

participants will be recruited to take part in the trial.

The high-risk behaviour of some young drivers contributes to the relatively high crash rate. The

most common behavioural factor for young drivers is speeding and around 80 per cent of those

killed are male. Provisional drivers constitute around seven per cent of licensees but are

responsible for 18 per cent of speeding infringements greater than 30km/h and 22 per cent of

speeding infringements in excess of 45km/h. Some young drivers rapidly accumulate demerit

points and those who commit traffic offences, especially speeding fines, have a significantly

higher risk of subsequent crash involvement.

The Driver

Qualification

Test helps to

screen out less

safe drivers

Provisional

drivers make up

seven per cent

of licensees but

are responsible

for 18 per cent

of speeding

infringements

greater than

30km/h

NSW Auditor-General's Report

Improving road safety:

Young drivers

KEY FINDINGS

To provide a greater incentive for novice drivers to do the right thing, the RTA has introduced a

range of penalties specific to P1 drivers. A provisional P1 licence will be suspended for at least

three months for any speeding offence or if the threshold of four demerit points is reached or

exceeded. An additional suspension applies for speeding offences in excess of 30km/h above the

speed limit.

Excessive alcohol consumption can also be a problem for young drivers. The highest percentage

of alcohol related fatal crashes in Australia are in the 21 to 29 years age group. In NSW, people

under 26 years of age comprise 39 per cent of drink drivers involved in fatal crashes (2005-2009

data). Learner and provisional drivers are required to have a zero blood alcohol concentration.

There has been some success at reducing repeat offenders in drink drivers. An evaluation of the

Sober Driver Program, a education program developed and then jointly funded by the RTA and

the Motor Accident Authority, demonstrated that program graduates were half as likely to

reoffend as other recidivist drink drivers who do not attend the program.

The program is currently funded by the RTA and delivered under the supervision of Corrective

Services NSW. It is targeted at individuals who have been screened for their suitability to

undertake the program and who have been convicted of at least two or more drink driving

offences within a five year period. Offenders are directed to undertake the program either by

court order, or by direction from their Probation and Parole Officer.

The RTA advises that it is currently developing a Repeat Offender Strategy, focusing on policies

and strategies to target drivers before they become repeat high risk speeding and/or drink-driving

offenders. The Strategy development is being undertaken in stages, initially identifying and

analysing current issues and researching repeat offender programs in other jurisdictions. It will

also include internal and external workshops and consultation with stakeholders and is scheduled

to be completed by June 2012.

Compulsory in-vehicle monitoring for serious and repeat speeding offenders should be

considered for both young and older drivers. Intelligent Speed Adaptation (ISA) systems are

vehicle-based devices incorporating digital speed limit maps and satellite navigation technology.

They have proven effective in improving driver compliance with posted speed limits by warning

drivers when they are speeding or by even physically limiting the speed of the vehicle. Evaluation

studies have found substantial crash reduction benefits for the speed limiting systems.

Research indicates that an offence free record is a good predictor of subsequent low crash

involvement. Motivation to drive safely can be increased by making the removal of restrictions

and imposition of sanctions both dependent on driving record. Introducing an offence free

period for provisional P1 licence drivers to graduate to a P2 licence and an unrestricted licence

could promote safer driving.

Consideration should also be given to:

• heavier fines, suspensions and/or restrictions for provisional drivers caught speeding or drink

driving with passengers in the car

• psychological testing for provisional drivers returning from disqualification/ suspension

• compulsory participation in a traffic offenders program and /or a sober driver program for

suspended provisional drivers, including training courses and alcohol interlock programs

• doubling the length of the second suspension during the provisional licence phase

• penalising passengers (as well as provisional drivers) for breaches of passenger restrictions

including overloading.

Some professions such as train drivers, airline pilots and police have to pass psychological tests.

This suggests there may be some scope to require young drivers to undertake psychological

testing to enter or progress through the driver licensing system. However, there are a number of

issues which would need to be researched and considered. These include the availability of

appropriate testing instruments, the possibility of manipulating test results, the validity of such

testing on a large scale, and what happens to people who cannot pass the psychological test.

RTA has had

some success

with repeat

drink driving

offenders

Sanctions

should be

strengthened

Sanctions

should be

strengthened

NSW Auditor-General's Report

Improving road safety:

Young drivers

KEY FINDINGS

Recommendation

The RTA should:

• investigate options to further strengthen sanctions for serious and repeat offenders

• research the feasibility of using psychological testing for novice drivers, particularly in respect

of serious and repeat offenders.

As previously discussed, the overall number of crashes involving fatalities and injuries has declined

over the last ten years and these reductions have been greater for young drivers compared with

drivers aged 26 and older. However, the reductions have been much greater in metropolitan

areas.

One possible reason for the limited crash reduction in country areas is the relatively low level of

enforcement in some rural and remote areas, which lack speed cameras and may also have

limited police numbers. Research shows that compliance will improve if there is a perceived risk

of getting caught. The RTA currently commits around $14 million per year to its Enhanced

Enforcement Program. This program enables the NSW Police Force to conduct specific, targeted

police enforcement operations. These are conducted at locations where certain offences

(speeding, drink driving and seat-belt offences) are known to be more likely to occur.

The RTA advises it is in the process of expanding its mobile speed camera program, which will

provide coverage in metropolitan and regional areas. It is also establishing point to point speed

enforcement zones in regional areas to better regulate heavy vehicles. This technology could also

be used to regulate the speed of passenger and light commercial vehicles.

Point to point speed camera technology allows continuous automated speed enforcement to be

applied over an extended length of road. While fixed speed cameras are an effective mechanism

for dealing with a specific location with known crash history, point-to-point cameras extend this

over a much longer length of road and hence may have a greater influence on drivers. Instead of

checking the spot speed of vehicles at a fixed point on the road, the cameras measure the

average speed of vehicles over a substantial distance. In this way, point-to-point enforcement

targets sustained speeding behaviour and can be more acceptable to the public than single-

camera enforcement, and act to reduce speed-related young driver crashes.

Recommendation

The RTA should look at ways of encouraging safer driving behaviour in country areas by:

• directing increased resources to speed and alcohol enforcement in regional and remote areas

at times of high risk for young drivers

• enhancing and extending speed enforcement activity in regional areas on light passenger and

light commercial vehicles through use of point to point camera technology and mobile units

• increasing awareness of the dangers of alcohol, speeding, fatigue and not wearing a seat-

belt through increased education/advertising campaigns in country areas.

In accordance with the recommendation in the NSW Auditor-General’s report on speed cameras,

the RTA has indicated that it will develop an overarching strategy for speed cameras

incorporating all camera types, by 31 March 2012.

Stronger

enforcement is

needed in

country areas

NSW Auditor-General's Report

Improving road safety:

Young drivers

APPENDICES

Appendix 1: Fatal crashes

Drivers involved in fatal crashes by urbanisation and age of driver

Age

group 99-00 06-07 07-08 08-09 09-10

% change

since

99-00

% change

since

06-07

Metro under 26 111 58 49 58 39 -65% -33%

26+ 236 132 120 122 131 -44% -1%

Unknown 5 2 1 1 0

Total 352 192 170 181 170 -52% -11%

Country under 26 73 64 57 56 59 -19% -8%

26+ 190 186 152 181 193 2% 4%

Unknown 5 0 0 0 1

Total 268 250 209 237 253 -6% 1%

Totals under 26 184 122 106 114 98 -47% -20%

26+ 426 318 272 303 324 -24% 2%

Unknown 10 2 1 1 1

Total 620 442 379 418 423 -32% -4%

Source: The RTA 2011

Drivers involved in injury crashes by urbanisation and age of driver

Age

group 99-00 06-07 07-08 08-09 09-10

% change

since

99-00

% change

since

06-07

Metro Under 26 6596 5867 5239 5017 4823 -27% -18%

26+ 14624 15793 14761 14423 14053 -4% -11%

Unknown 2126 1082 1017 1005 931

Total 23346 22742 21017 20445 19807 -15% -13%

Country Under 26 2048 1784 1813 1677 1759 -14% -1%

26+ 4191 4050 4079 4070 4049 -3% 0%

Unknown 448 249 232 243 224

Total 6687 6083 6124 5990 6032 -10% -1%

Totals Under 26 8644 7651 7052 6694 6582 -24% -14%

26+ 18815 19843 18840 18493 18102 -4% -9%

Unknown 2577 1327 1253 1257 1158

Total 30033 28825 27141 26435 25839 -14% -10%

Source: The RTA 2011

Notes: The RTA crash data includes only crashes where

• The crash was reported to the Police

• The crash occurred on a road open to the public

• The crashes resulted in at least one person killed or injured or at least one motor vehicle towed away.

Drivers are defined as drivers of light passenger vehicles such as cars, four-wheel drives and light

trucks. Heavy vehicle drivers, bus drivers and riders of motorcycles are specifically excluded.

The metropolitan area is defined as the Sydney, Newcastle and Wollongong greater conurbation

areas – this includes the Sydney, Newcastle and Wollongong metropolitan areas as well as the

Wyong, Gosford, Hawkesbury, Blue Mountains and Wollondilly local government areas. The

country area is defined as the rest of the State.

Contrary to the belief among some residents of rural and remote areas that locals are not

involved in serious traffic incidents, research indicates the majority of drivers involved in rural

crashes are actually rural residents.

Appendices

NSW Auditor-General's Report

Improving road safety:

Young drivers

APPENDICES

Appendix 2: Licence test pass rates 2005-2010

Registry/ licence testing centre name Pass rate (%)

RTA NAROOMA MOTOR REGISTRY 91

RTA BEGA MOTOR REGISTRY 90

RTA CROOKWELL COUNCIL AGENCY 86

RTA BATEMANS BAY MOTOR REGISTRY 84

RTA BOMBALA COUNCIL AGENCY 84

RTA MOULAMEIN COUNCIL AGENCY 83

RTA MACLEAN - ANNEXE OF GRAFTON MR 83

RTA MORUYA MOTOR REGISTRY 82

RTA WILCANNIA COUNCIL AGENCY 81

RTA MOAMA COUNCIL AGENCY 81

RTA EDEN MOTOR REGISTRY 79

RTA WENTWORTH MOTOR REGISTRY 79

RTA LEETON MOTOR REGISTRY 79

RTA NAMBUCCA HEADS MOTOR REGISTRY 78

RTA FORSTER MOTOR REGISTRY 78

RTA TWEED HEADS MOTOR REGISTRY 77

RTA TUMUT MOTOR REGISTRY 77

RTA SHELLHARBOUR MOTOR REGISTRY 76

RTA GRAFTON MOTOR REGISTRY 76

RTA KIAMA MOTOR REGISTRY 75

RTA COBAR COUNCIL AGENCY 75

RTA HAY MOTOR REGISTRY 75

RTA ULLADULLA MOTOR REGISTRY 74

RTA WARIALDA COUNCIL AGENCY 74

WOODENBONG DRIVER TESTING 73

RTA TENTERFIELD MOTOR REGISTRY 73

RTA CORRIMAL MOTOR REGISTRY 73

RTA NOWRA MOTOR REGISTRY 73

RTA FINLEY MOTOR REGISTRY 73

RTA COOTAMUNDRA MOTOR REGISTRY 73

RTA INVERELL MOTOR REGISTRY 72

RTA WALCHA COUNCIL AGENCY 72

RTA KATOOMBA MOTOR REGISTRY - CLOSED - 72

RTA ARMIDALE MOTOR REGISTRY 72

RTA UNANDERRA MOTOR REGISTRY 72

RTA COOMA MOTOR REGISTRY 72

RTA CESSNOCK MOTOR REGISTRY 71

RTA DUNGOG COUNCIL AGENCY 71

RTA COFFS HARBOUR MOTOR REGISTRY 71

NSW Auditor-General's Report

Improving road safety:

Young drivers

APPENDICES

Registry/ licence testing centre name Pass rate (%)

RTA COONABARABRAN MOTOR REGISTRY 71

RTA COWRA MOTOR REGISTRY 71

RTA BATHURST MOTOR REGISTRY 71

RTA ENGADINE MOTOR REGISTRY 71

RTA THE ENTRANCE MOTOR REGISTRY 70

RTA BALLINA MOTOR REGISTRY 69

RTA GLEN INNES MOTOR REGISTRY 69

RTA NYNGAN MOTOR REGISTRY 69

RTA WYONG MOTOR REGISTRY 69

RTA ST MARYS MOTOR REGISTRY 69

RTA MUDGEE MOTOR REGISTRY 68

RTA NELSON BAY MOTOR REGISTRY 68

RTA GLOUCESTER COUNCIL AGENCY 68

RTA PORT MACQUARIE MOTOR REGISTRY 68

RTA NARRANDERA MOTOR REGISTRY 68

RTA COROWA COUNCIL AGENCY 67

RTA KEMPSEY MOTOR REGISTRY 67

RTA YOUNG MOTOR REGISTRY 67

RTA FRENCHS FOREST MOTOR REGISTRY 67

RTA LIGHTNING RIDGE MOTOR REGISTRY 67

RTA INGLEBURN MOTOR REGISTRY 66

RTA WAUCHOPE MOTOR REGISTRY 66

RTA SPRINGWOOD MOTOR REGISTRY 66

RTA DENILIQUIN MOTOR REGISTRY 66

RTA MT DRUITT MOTOR REGISTRY 66

RTA PENRITH SOUTH MOTOR REGISTRY 65

RTA RICHMOND MOTOR REGISTRY 65

RTA TUMBARUMBA COUNCIL AGENCY 65

RTA LISMORE MOTOR REGISTRY 65

RTA WOY WOY MOTOR REGISTRY 65

RTA WARREN COUNCIL AGENCY 64

RTA JUNEE COUNCIL AGENCY 64

RTA GRIFFITH MOTOR REGISTRY 64

RTA MOREE MOTOR REGISTRY 64

RTA QUEANBEYAN MOTOR REGISTRY 64

RTA TOUKLEY MOTOR REGISTRY 64

RTA GILGANDRA COUNCIL AGENCY 63

RTA TEMORA COUNCIL AGENCY 63

RTA GOULBURN MOTOR REGISTRY 63

RTA MITTAGONG MOTOR REGISTRY 63

NSW Auditor-General's Report

Improving road safety:

Young drivers

APPENDICES

Registry/ licence testing centre name Pass rate (%)

RTA ERINA MOTOR REGISTRY 63

RTA NARRABRI MOTOR REGISTRY 63

RTA CASTLE HILL MOTOR REGISTRY 62

RTA BROKEN HILL MOTOR REGISTRY 62

RTA TAREE MOTOR REGISTRY 62

RTA GUNNEDAH MOTOR REGISTRY 62

RTA MURWILLUMBAH MOTOR REGISTRY 62

RTA BLUE MOUNTAINS COUNCIL AGENCY 62

RTA ROCKDALE MOTOR REGISTRY 62

RTA NEWCASTLE MOTOR REGISTRY 62

RTA WALGETT MOTOR REGISTRY 62

RTA MAYFIELD MOTOR REGISTRY 61

RTA DUBBO MOTOR REGISTRY 61

RTA MAITLAND MOTOR REGISTRY 61

RTA ALBURY MOTOR REGISTRY 61

RTA NARELLAN MOTOR REGISTRY 61

RTA CASINO MOTOR REGISTRY 61

RTA WEST WYALONG MOTOR REGISTRY 61

RTA TORONTO MOTOR REGISTRY 61

RTA BOURKE COUNCIL AGENCY 60

RTA CAMPBELLTOWN MOTOR REGISTRY 60

RTA BELMONT MOTOR REGISTRY 60

RTA QUIRINDI COUNCIL AGENCY 60

RTA FORBES MOTOR REGISTRY 60

RTA BANKSTOWN MOTOR REGISTRY 60

RTA MIRANDA MOTOR REGISTRY 60

RTA MANLY MOTOR REGISTRY 60

RTA WOLLONGONG MOTOR REGISTRY 60

RTA CHATSWOOD MOTOR REGISTRY 59

RTA PARRAMATTA MOTOR REGISTRY 59

RTA SINGLETON MOTOR REGISTRY 59

RTA LITHGOW MOTOR REGISTRY 59

RTA RYDE MOTOR REGISTRY 59

RTA ORANGE MOTOR REGISTRY 58

OBERON DRIVER TESTING 58

RTA HORNSBY MOTOR REGISTRY 58

RTA TAMWORTH MOTOR REGISTRY 58

RTA PARKES MOTOR REGISTRY 58

RTA WALLSEND MOTOR REGISTRY 58

RTA CONDOBOLIN COUNCIL AGENCY 58

NSW Auditor-General's Report

Improving road safety:

Young drivers

APPENDICES

Registry/ licence testing centre name Pass rate (%)

RTA COONAMBLE COUNCIL AGENCY 58

RTA FIVE DOCK MOTOR REGISTRY 58

RTA MUSWELLBROOK MOTOR REGISTRY 57

RTA WARRIEWOOD MOTOR REGISTRY 57

RTA YASS MOTOR REGISTRY 57

RTA BEVERLY HILLS MOTOR REGISTRY 57

RTA WARNERS BAY MOTOR REGISTRY 57

RTA BLACKTOWN - SHOP FRONT 57

RTA HURSTVILLE MOTOR REGISTRY 57

RTA RAYMOND TERRACE MOTOR REGISTRY 56

RTA WAGGA WAGGA MOTOR REGISTRY 56

RTA MERRIWA COUNCIL AGENCY 55

RTA CARDIFF MOTOR REGISTRY - CLOSED - 56

RTA BOTANY MOTOR REGISTRY 55

RTA WELLINGTON MOTOR REGISTRY 55

RTA LIVERPOOL MOTOR REGISTRY 54

RTA BONDI JUNCTION MOTOR REGISTRY 53

RTA PADSTOW MOTOR REGISTRY 53

RTA MARRICKVILLE MOTOR REGISTRY 52

RTA LAKE CARGELLIGO COUNCIL AGENCY 51

RTA MERRYLANDS MOTOR REGISTRY 50

RTA FAIRFIELD MOTOR REGISTRY 50

RTA CHARLESTOWN MOTOR REGISTRY - CLOSED - 49

RTA SILVERWATER MOTOR REGISTRY 49

RTA LIDCOMBE MOTOR REGISTRY 48

RTA GOSFORD MOTOR REGISTRY 46

RTA WETHERILL PARK MOTOR REGISTRY 46

RTA MAROUBRA JUNCT MOTOR REGISTRY 43

Average 67

Source: RTA 2011

NSW Auditor-General's Report

Improving road safety:

Young drivers

APPENDICES

Appendix 3: About the Audit

Audit objective

This performance audit assessed the effectiveness of the RTA’s driver licence testing and

regulation (licensing practices) in ensuring young people drive safely.

Audit scope

We expected that the RTA would have implemented appropriate licensing practices, including

regulations and testing, during:

• the learner/driver phase (criterion 1)

• the provisional licensing phase (criterion 2)

In judging ‘appropriate’, we had regard to such things as:

• valid and reliable evaluations which show the RTA’s licensing practices have been successful

in reducing fatalities and injuries among young drivers (evaluations)

• valid and reliable data which demonstrate reduced fatalities and injuries among young drivers

which can be linked to implementation of licensing practices (supporting data)

• reputable research and better practice guidance which indicate the RTA’s licensing practices

are likely to have contributed to safer young drivers (better practice)

• systematic identification and evaluation of improvement opportunities , and evidence that

those that are worthwhile have been recommended to Government (continuous

improvement)

Licensing practices include:

• practical and theoretical tests (including but not limited to technical competence)

• restrictions on speed, night driving, vehicles, passengers, phone use etc

• minimum age, training and experience requirements

• requirements for regaining the right to drive after loss or suspension of licence

We were mindful of such things as the:

• benefits to young people of the increased mobility that comes from driving, particularly in

areas not well served by alternative transportation

• impact of licensing practices on the rate of unlicensed driving.

Audit exclusions

We did not examine:

• school education programs

• motorcycle or truck driver licensing

• other road safety initiatives, except as they relate specifically to young driver safety.

Audit approach

We collected evidence by:

• interviewing head office staff from the RTA responsible for policies and processes regarding

driver education, training and licence testing

• interviewing experts in driver safety issues in a number of research organisations

• interviewing relevant agencies and other organisations regarding driver education

• reviewing supporting documents provided by the RTA

• conducting a literature review

• analysing data on:

− licence pass rates across motor registries and agencies

− crash rates for city and country drivers, and for young people.

NSW Auditor-General's Report

Improving road safety:

Young drivers

APPENDICES

We also examined approaches in other jurisdictions including Australian states and territories,

New Zealand, the United States, the United Kingdom, and other countries.

Audit selection

We use a strategic approach to selecting performance audits which balances our performance

audit program to reflect issues of interest to Parliament and the community. Details of our

approach to selecting topics and our forward program are available on our website.

Audit methodology

Our performance audit methodology is designed to satisfy Australian Audit Standards ASAE 3500

on performance auditing, and to reflect current thinking on performance auditing practices. We

produce our audits under a quality management system certified to International Standard

ISO 9001. Our processes have also been designed to comply with the auditing requirements

specified in the Public Finance and Audit Act 1983.

Acknowledgements

We gratefully acknowledge the co-operation and assistance provided by the NSW Roads and

Traffic Authority Centre for Road Safety whose staff participated in interviews and provided

information relevant to the audit.

Audit team

Our team for the performance audit was Rod Longford and Neil Avery. Rob Mathie and Sean

Crumlin provided direction and quality assurance. We were also assisted by Brett Chaiyawat. Our

road safety experts, Mark Stevenson and Jennie Oxley from the Monash University Accident

Research (MUARC), provided advice and assistance throughout the audit.

Audit cost

Including staff costs, printing costs and overheads, the estimated cost of the audit is $191,900.

NSW Auditor-General's Report

Improving road safety:

Young drivers

PERFORMANCE AUDITING

What are performance audits?

Performance audits determine whether an agency is

carrying out its activities effectively, and doing so

economically and efficiently and in compliance with

all relevant laws.

The activities examined by a performance audit may

include a government program, all or part of a

government agency or consider particular issues

which affect the whole public sector. They cannot

question the merits of Government policy

objectives.

The Auditor-General’s mandate to undertake

performance audits is set out in the Public Finance

and Audit Act 1983.

Why do we conduct performance audits?

Performance audits provide independent assurance

to Parliament and the public that government funds

are being spent efficiently, economically or

effectively and in accordance with the law.

Through their recommendations, performance

audits seek to improve the efficiency and

effectiveness of government agencies so that the

community receives value for money from

government services.

Performance audits also focus on assisting

accountability processes by holding managers to

account for agency performance.

Performance audits are selected at the discretion of

the Auditor-General who seeks input from

Parliamentarians, the public, agencies and Audit

Office research.

What happens during the phases of a

performance audit?

Performance audits have three key phases:

planning, fieldwork and report writing. They can

take up to nine months to complete, depending on

the audit’s scope.

During the planning phase the audit team develops

an understanding of agency activities and defines

the objective and scope of the audit.

The planning phase also identifies the audit criteria.

These are standards of performance against which

the agency or program activities are assessed.

Criteria may be based on best practice, government

targets, benchmarks or published guidelines.

At the completion of fieldwork the audit team

meets with agency management to discuss all

significant matters arising out of the audit.

Following this, a draft performance audit report is

prepared.

The audit team then meets with agency

management to check that facts presented in the

draft report are accurate and that recommendations

are practical and appropriate.

A final report is then provided to the CEO for

comment. The relevant Minister and the Treasurer

are also provided with a copy of the final report.

The report tabled in Parliament includes a response

from the CEO on the report’s conclusion and

recommendations. In multiple agency performance

audits there may be responses from more than one

agency or from a nominated coordinating agency.

Do we check to see if recommendations

have been implemented?

Following the tabling of the report in Parliament,

agencies are requested to advise the Audit Office on

action taken, or proposed, against each of the

report’s recommendations. It is usual for agency

audit committees to monitor progress with the

implementation of recommendations.

In addition, it is the practice of Parliament’s Public

Accounts Committee (PAC) to conduct reviews or

hold inquiries into matters raised in performance

audit reports. The reviews and inquiries are usually

held 12 months after the report is tabled. These

reports are available on the Parliamentary website.

Who audits the auditors?

Our performance audits are subject to internal and

external quality reviews against relevant Australian

and international standards.

Internal quality control review of each audit ensures

compliance with Australian assurance standards.

Periodic review by other Audit Offices tests our

activities against best practice. We are also subject

to independent audits of our quality management

system to maintain certification under ISO 9001.

The PAC is also responsible for overseeing the

performance of the Audit Office and conducts a

review of our operations every three years. The

review’s report is tabled in Parliament and available

on its website.

Who pays for performance audits?

No fee is charged for performance audits. Our

performance audit services are funded by the NSW

Parliament.

Further information and copies of reports

For further information, including copies of

performance audit reports and a list of audits

currently in-progress, please see our website

www.audit.nsw.gov.au or contact us on

9275 7100.

Performance auditing

NSW Auditor-General's Report

Improving road safety:

Young drivers

PERFORMANCE AUDITING

Performance audit reports

No Agency or Issues Examined Title of Performance Audit Report

or Publication

Date Tabled in

Parliament or

Published

217 Roads and Traffic Authority Improving Road Safety:

Young Drivers

October 2011

216 Department of Premier and

Cabinet

Department of Finance and

Services

Prequalification Service:

Performance and Management

Services

28 September 2011

215 Roads and Traffic Authority Improving Road Safety:

Speed Cameras

27 July 2011

214 Barangaroo Delivery Authority

Department of Transport

NSW Treasury

Government Expenditure and

Transport Planning in relation to

implementing Barangaroo

15 June 2011

213 Aboriginal Affairs NSW

Department of Premier and

Cabinet

Two Ways Together -

NSW Aboriginal Affairs Plan

18 May 2011

212 Office of Environment & Heritage

WorkCover NSW

Transport of Dangerous Goods 10 May 2011

211 NSW Police Force

NSW Health

The Effectiveness of Cautioning for

Minor Cannabis Offences

7 April 2011

210 NSW Health Mental Health Workforce 16 December 2010

209 Department of Premier and

Cabinet

Sick leave 8 December 2010

208 Department of Industry and

Investment

Coal Mining Royalties 30 November 2010

207 Whole of Government electronic

information security

Electronic Information Security 20 October 2010

206 NSW Health

NSW Ambulance Service

Helicopter Emergency Medical

Service Contract

22 September 2010

205 Department of Environment,

Climate Change and Water

Protecting the Environment:

Pollution Incidents

15 September 2010

204 Corrective Services NSW Home Detention 8 September 2010

203 Australian Museum Knowing the Collections 1 September 2010

202 Industry & Investment NSW

Homebush Motor Racing Authority

Events NSW

Government Investment in V8

Supercar Races at Sydney Olympic

Park

23 June 2010

201 Department of Premier and

Cabinet

Severance Payments to Special

Temporary Employees

16 June 2010

200 Department of Human Services -

Ageing, Disability and Home Care

Access to Overnight Centre-Based

Disability Respite

5 May 2010

199 Department of Premier and

Cabinet

NSW Treasury

WorkCover NSW

Injury Management in the NSW

Public Sector

31 March 2010

198 NSW Transport and Infrastructure Improving the Performance of

Metropolitan Bus Services

10 March 2010

197 Roads and Traffic Authority of

NSW

Improving Road Safety:

School Zones

25 February 2010

196 NSW Commission for Children and

Young People

Working with Children Check 24 February 2010

NSW Auditor-General's Report

Improving road safety:

Young drivers

PERFORMANCE AUDITING

No Agency or Issues Examined Title of Performance Audit Report

or Publication

Date Tabled in

Parliament or

Published

195 NSW Police Force

NSW Department of Health

Managing Forensic Analysis –

Fingerprints and DNA

10 February 2010

194 Department of Premier and

Cabinet

Department of Services,

Technology and Administration

NSW Treasury

Government Advertising 10 December 2009

193 Roads and Traffic Authority of

NSW

Handback of the M4 Tollway 27 October 2009

192 Department of Services,

Technology and Administration

Government Licensing Project 7 October 2009

191 Land and Property Management

Authority

Maritime Authority of NSW

Administering Domestic Waterfront

Tenancies

23 September 2009

190 Department of Environment,

Climate Change and Water

NSW Environmental Trust

Environmental Grants

Administration

26 August 2009

189 NSW Attorney General’s

Department

NSW Department of Health

NSW Police Force

Helping Aboriginal Defendants

through MERIT

5 August 2009

187 Roads and Traffic Authority of

NSW

Improving Road Safety – Heavy

Vehicles

13 May 2009

186 Grants Grants Administration 6 May 2009

185 Forests NSW Sustaining Native Forest Operations 29 April 2009

184 NSW Police Force Managing Injured Police 10 December 2008

183 Department of Education and

Training

Improving Literacy and Numeracy in

NSW Public Schools

22 October 2008

182 Department of Health Delivering Health Care out of

Hospitals

24 September 2008

181 Department of Environment and

Climate Change

Recycling and Reuse of Waste in the

NSW Public Sector

11 June 2008

180 Follow-up of 2003 Performance

Audit

Protecting Our Rivers 21 May 2008

Performance audits on our website

A list of performance audits tabled or published since March 1997, as well as those currently in

progress, can be found on our website www.audit.nsw.gov.au.