A

Graduated Driver Licensing System

Planning Guide 

2016 
Created by:

David Napp, MPH

Practical Applications of Public Health

Contract: Professional and Scientific Associates (PSA)

Created for:

National Center for Injury Prevention and Control

Centers for Disease Control and Prevention 
1

Overview

Motor vehicle crashes are a leading cause 

of death among teenagers. Graduated Driver 

Licensing systems (GDL) give beginning teen 

drivers experience driving under lower-risk 

driving conditions, while allowing them time 

to acquire the skills, maturity, and experience 

necessary for full licensure. National and 

state-wide evaluations indicate that GDL reduces 

fatal crashes among newly licensed teen drivers. 

Importantly, the more comprehensive GDLs are 

associated with the greatest benefits. 

GDL consists of three stages:

Stage 1. Learners Permit: Teens can drive

only under the supervision of a licensed,

adult driver.

Stage 2. Intermediate License (also

called provisional license): Teens can drive

without supervision under lower risk driving

conditions. Two common restrictions include

limits on nighttime driving and driving with

teen passengers.

Stage 3. Unrestricted License: Teens can

drive independently and previous restrictions

are lifted.

Currently all 50 states and 

the District of Columbia have 

implemented all or some of the 

components of a 3-stage Graduated 

Driver Licensing systems but specific 

components and timelines for 

progressing through the GDL stages 

vary from state-to-state.

To reduce crash deaths and injuries involving 

teen drivers, state partners can assess their 

states’ motor vehicle-related injury and 

crash burden among teens, their passengers, 

and others who share the road with teens; 

assess the risk and protective factors for 

teens in their state; develop actionable plans 

to reduce crashes involving teen drivers; 

and build and leverage partnerships with 

diverse stakeholders. To assist states with 

assessment, planning, and implementation 

of strategies to reduce teen driver crashes, 

CDC developed the Graduated Driver 

Licensing System Planning Guide. 
2

This planning guide is designed to assist states to assess, develop, and implement 

actionable plans to strengthen graduated driver licensing practices. The guide may 

be used by individuals or groups within a state working to improve GDL. The guide 

includes five sections that address: 

1. Background 

information on GDL

2. Data and their use 

in planning for GDL 

improvements

3. Partnerships and their 

role in supporting efforts 

to improve GDL

4. Communication

5. Strategy development 

to improve GDL 

The first four sections of the guide contain 

a series of questions that states can use to 

assess strengths and opportunities in teen 

driving safety, and help identify action steps 

for developing an overall plan to improve 

teen driver safety and improve GDL. The last 

section of the guide presents a framework 

for synthesizing the information into a 

comprehensive strategy for improving GDL 

including goals, timelines, and responsibilities.

The planning guide was designed to be 

adapted to accommodate particular needs 

among different states and communities. For 

example, states may prefer to give more or 

less attention to some sections of the guide or 

may find it beneficial to complete the sections 

in a different order. States may also consider 

whether there are issues relevant to their local 

context that are not addressed in this guide. 

For states and communities that have little or 

no experience with community assessment 

on transportation issues, consultation with an 

expert facilitator is recommended.

This guide reflects the experiences and 

insight of national and state GDL experts and 

partners, including some from states that have 

improved their GDL. As part of the process of 

developing this guide, CDC solicited individual 

feedback and opinions of traffic safety and 

public health practitioners and researchers. 

Their names are listed at the end of this 

document and their contributions to creating 

this planning guide were invaluable. 
3

I. Background

Introduction

Gathering background information about your 

state’s current GDL system is an important 

part of preparing your plan. This section of the 

planning guide provides questions that, when 

answered, will help you understand your state’s 

unique needs and opportunities. If you are 

unfamiliar with how your state’s GDL system 

was established, this is a good opportunity to 

learn about the history of GDL in your state. 

Details of each state’s GDL are available 

from the Insurance Institute for Highway 

Safety (http://www.iihs.org/iihs/topics/laws/

graduatedlicenseintro?topicName=teenagers) 

and the Governors Highway Safety Association 

(http://www.ghsa.org/html/stateinfo/laws/

license_laws.html).

Assessment

1. What are the features of your state’s 

current GDL?

■ What is the minimum age to acquire a 

learner’s permit?

■ What is the minimum length of time a 

learner’s permit must be held before getting 

an intermediate license?

■ What is the length of the intermediate 

license stage?

■ At what age are all restrictions lifted?

■ Are there nighttime driving restrictions? If 

yes, at what time do they begin and end? 

How many months during the intermediate 

licensing stage do they last?

■ Are there passenger restrictions? If yes, what 

are they? How many months during the 

intermediate licensing stage do they last?

■ Are there exceptions for any of the above 

restrictions (e.g., family exemptions for 

passenger limits, night driving exemptions 

for school and/or work trips, shorter 

mandatory holding periods for driver 

education graduates)?

■ Is enforcement of GDL primary or secondary 

in your state?

■ How much law enforcement activity is there 

for night, passenger, and other restrictions?

■ Are there other important features of your 

GDL not captured by the answers to the 

questions above?

2. When was your state’s GDL first 

established and have there been any 

updates?

■ When was GDL first established in your state 

(provide date)?

■ What stakeholders were involved in your 

state’s past GDL efforts?

■ Has your GDL been revised since then? 

» If Yes, what changes have been made?

» If No, does your current GDL have gaps 

compared to current evidence?

3. What effect has GDL had in your state?

■ Has GDL been evaluated for safety benefits 

in your state? If so, what were the results?

■ Are there any studies about awareness of 

GDL among parents and/or teens in your 

state, or studies of compliance among 

teens? If so, what have these studies found?

■ How have parents, teens, and other 

stakeholders in your state reacted to GDL? 

Are there any sound scientific data to 

document public reaction?
4

Action Step 1: Background

Based on this section of the planning guide, what should you do to gather background 

information about GDL in your state? Write your ideas below and then continue on to the 

next section. After completing the four action steps (one at the end of each section), you 

will have an opportunity to synthesize the ideas from each action step and create an overall 

strategy in the last section of the planning guide.

II. Data

Introduction

Data play an important part in any planning 

process. Data on young driver crashes may 

reveal patterns related to driver age, crash type, 

nighttime driving, and presence of passengers, 

thereby helping identify ways in which GDL 

could be more effective in saving lives in your 

state. Data are important to identify, monitor, 

and evaluate evidence-based strategies that 

can be utilized to save lives. In addition to 

national data sources such as National Highway 

Traffic Safety Administration’s (NHTSA’s) Fatality 

Analysis Reporting System (FARS) (https://

www.nhtsa.gov/research-data/fatality-analysisreporting-system-fars) and Centers for Disease 

Control and Prevention’s (CDC’s) Web-based 

Injury Statistics Query and Reporting System 

(WISQARS) (http://www.cdc.gov/injury/

wisqars/), fatal and non-fatal crash data may be 

available locally from your state Department 

of Transportation, health department, 

state police/patrol, hospital emergency 

departments, and other sources. Surveys to 

help understand parental perceptions and 

knowledge of the risks of teen driving and the 

effectiveness of strategies, such as GDL, can 

help states and local communities target those 

strategies that are likely to fit the needs of the 

community. 
5

Assessment

1. What data have you used to examine 

young driver crashes in your state?

■ What have you learned from these data?

■ How have you used this information?

■ What do these data suggest as possible 

improvements to GDL in your state?

2. What are the most important 

unanswered questions about young driver 

safety in your state?

■ What data are needed to answer these 

questions?

■ How can you access existing data and/or 

collect the data you need?

3. Do neighboring states have data that 

could be helpful to you?

■ Do any neighboring states have more 

comprehensive GDL with data to document 

effectiveness?

4. Have survey data on GDL already been 

collected in your state?

■ What did you learn from these data?

■ How have you used this information?

■ How can you collect public perception data 

on teen driver safety and GDL if you don’t 

already have it?

Action Step 2: Data

Based on this section of the planning guide, what should you do to use data for planning GDL 

improvements in your state? What data sources do you need and are they readily available? Write 

your ideas below and then continue on to the next section. After completing the four action 

steps (one at the end of each section), you will have an opportunity to synthesize the ideas from 

each action step and create an overall strategy in the last section of the planning guide.
6

III. Partnerships to Improve Teen 

Driver Safety

Introduction

Efforts to improve GDL require strong 

partnerships with diverse groups including 

state and local agencies, nongovernmental 

organizations, and citizens with expertise in 

traffic safety, communication, social and print 

media, outreach and education, funding, 

data collection and analysis. Creating these 

partnerships is an important step in the planning 

process. Features of a successful partnership 

include strong leadership, a core working group 

responsible for implementing strategies on 

behalf of the partnership, and someone who 

can devote a significant amount of time to the 

day-to-day management of this effort. The 

Partnership Matrix (pages 8 and 9) can be used 

to help create a new partnership or assess the 

strengths and needs of an existing group.

Assessment

1. Does a partnership already exist in your 

state that can focus on GDL? 

■ What stakeholders are currently 

represented?

■ What additional stakeholders need to be 

recruited?

■ What will be the roles of partnership 

members?

■ What core group will be primarily 

responsible for doing the work?

■ Who will lead and who will staff the effort?

2. If a partnership does not already exist, 

how can you form this group?

■ What stakeholders need to be recruited?

■ What will be the roles of partnership 

members?

■ What core group will be primarily 

responsible for doing the work?

■ Who will lead and who will staff the effort?

3. Does your partnership have the 

expertise, resources, and other 

capabilities it may need?

■ What capabilities does the group already 

have?

■ What additional capabilities may be 

needed?

■ How can these be acquired? 
7

Action Step 3: Partnership

Based on this section of the planning guide, what should you do to improve your current 

partnership or form a new partnership to support GDL in your state? Write your ideas below and 

then continue on to the next section. After completing the four action steps (one at the end of 

each section), you will have an opportunity to synthesize the ideas from each action step and 

create an overall strategy in the last section of the planning guide.
8

GDL Partnership Matrix

This matrix can be used to help create a new GDL partnership or assess the strengths and needs of 

an existing group. The top row lists capabilities your group may need. The left column lists many 

possible partnership members. Please remember that partnerships do not necessarily require all 

of these members. This list is intended only as a stimulus for you to consider which stakeholders 

may be appropriate for your group. First, place a check in the cells of the matrix to inventory your 

current partnership’s members and capabilities. Then consider which additional members you 

want to recruit to create the strongest possible partnership. 

Partnership Capabilities

Partnership Members

Collecting 

data

Analyzing 

interpreting 

data

Creating 

print 

materials

Working 

with the 

media

Educating 

decision 

makers

Working 

with key 

stakeholders

Managing 

partnership 

meetings

Contributing 

resources

Government

State and local elected officials

State Highway Safety Office

State Department of Transportation

Department of Motor Vehicles

Departments of Health (state and local)

Other: 

Traffic Safety Organizations

Community Traffic Safety Groups

Advocates for Highway and Auto Safety

National Safety Council

AAA

Safe Kids

MADD

SADD

Teen crash survivors and families

Other: 

Law Enforcement

Police association

Police department

State police / highway patrol

Sheriff’s department

Other: 

Health Care

American Academy of Pediatrics

Hospitals

Doctors

Nurses

Emergency Departments

Trauma Centers

Other: 
9

Partnership Capabilities

Partnership Members

Collecting 

data

Analyzing 

interpreting 

data

Creating 

print 

materials

Working 

with the 

media

Educating 

decision 

makers

Working 

with key 

stakeholders

Managing 

partnership 

meetings

Contributing 

resources

Emergency Response

EMS

Fire safety

First responders

Other: 

Researchers

Universities

Research institutes

Other: 

Businesses

Chamber of commerce

Driver education

Insurance industry

Alcoholic beverage industry

Newspaper, radio, and TV

Automobile dealers

Youth-serving business

Other: 

Schools

Parent-teacher association

Student groups

School board members

Principals

Superintendents

Other: 

Other
10

IV. Communication

Introduction

A communication plan can be developed for 

how the partnership will share their findings 

with key audiences about the safety benefits 

of improving GDL. Your communication 

plan may include steps for developing print 

materials, working with media outlets, creating 

and posting on social media, and identifying 

parents, teens, health care providers, and 

other community members who can provide 

personal stories of their experience with 

GDL and the importance of teen driver 

safety. Framing, a communication strategy 

for influencing, understanding and building 

support for evidence-based solutions, may be 

particularly useful in communication planning.

Assessment

1. How can “framing” of messages be used 

to enhance understanding and support 

for improving teen driver safety?

■ How have others used framing in messaging 

to improve understanding and support for 

traffic injury prevention initiatives? How can 

you learn more about this approach and/

or acquire expert assistance in this area of 

communication science?

■ What do various audiences currently think 

about the status of teen driver safety in 

your state and about who is responsible for 

addressing this issue? 

■ How can you frame the discourse about GDL 

as a proven strategy to improve teen driver 

safety?

2. How will you educate those in 

your state and community about the 

strength of the evidence for specific GDL 

components to save lives?

■ What educational materials will you need? 

(e.g., print materials, PSAs, podcasts, social 

media posts, blog posts, etc.)

■ What specific audiences do you want to 

reach? (e.g., parents, decision makers, 

teen drivers/passengers, law enforcement, 

media, educators, etc.)

■ What state, local, and non-traditional 

media channels can you use to reach 

your audience? (e.g., newspapers, radio, 

television news, newsletters, school 

newspapers, blogs, social media outlets, 

listservs, etc.)

■ Have there been any recent high profile 

events you can use to bring more attention to 

the continued need to protect young drivers? 

(e.g., teen crash, updated GDL legislation in 

neighboring states, new data, etc.)
11

Action Step 4: Communication

Based on this section of the planning guide, what can you do to educate decision makers, 

opinion leaders, and the general public about how improvements to GDL could improve teen 

driver safety in your state? Write your ideas below and then continue on to the next section. 

After completing the four action steps, you will have an opportunity to synthesize the ideas 

from each action step (one at the end of each section) and create an overall strategy in the last 

section of the planning guide.

V. Strategy

Introduction

It is time to formulate your strategy! Your plan 

should incorporate action steps identified 

during the earlier sections of this guide 

and include additional tasks necessary to 

develop a comprehensive strategy. The table 

below provides a basic framework to begin 

developing your plan. Please adapt this 

framework to meet your needs. You may find 

it easiest to complete this chart in electronic 

form to facilitate adding additional steps 

and detail. 
12

What changes are needed to improve the GDL program in your state? 

What steps are needed to implement changes 

identified and listed in the box above? 

Who will you engage and 

when will this be complete?
13

What are the main steps your partnership 

will undertake?

1

2

3

4

5

6

7

8

9

10

Who will 

do this?

By when will 

this be done?

How will you monitor progress to ensure you are on track with your plan and make midcourse adjustments when needed?
14

Attachment: 

CDC thanks the traffic safety and public health practitioners and researchers for their invaluable 

contributions to creating this planning guide. Contributors’ affiliations at the time that they 

provided input (2008) are listed below.

Contributors

Gloria Mansfield Averill Tacoma / Pierce County DUI Task Force

Steve Blackistone National Transportation Safety Board

Robert Foss University of North Carolina Highway Safety Research Center

Linda Gorman AAA Arizona

Arlene Greenspan Centers for Disease Control and Prevention

Barbara Harsha Governors Highway Safety Association

Suzanne Hill Children’s Hospital of Philadelphia

Kathy Leggett Blank Children’s Hospital

Anne McCartt Insurance Institute for Highway Safety

Justin McNaull AAA

Karen Morton American Association of Motor Vehicle Administrators

Jessica Shisler-Lee Centers for Disease Control and Prevention

Jean Shope University of Michigan Transportation Research Institute

Ruth Shults Centers for Disease Control and Prevention

Anne Teigen National Conference of State Legislatures

Elizabeth Vermette GDL Policy Consultant

Amber Williams Safe States Alliance 

Jim Wright National Highway Traffic Safety Administration

CDC would like to acknowledge the late Mr. Kevin Quinlan for his many meaningful contributions 

to driver safety, including his contributions to the early development of the GDL Planning Guide. 
Notes:
For more information please contact 

Centers for Disease Control and Prevention

1600 Clifton Road, Atlanta, GA 30329

800-CDC-INFO | (800-232-4636) | TTY: (888) 232-6348

www.cdc.gov/cdc-info

www.cdc.gov/transportationsafety/teen_drivers

Publication date: December 2016

CS 324286-D