The memo says current Westminster proposals for learner and novice drivers are too weak and calls instead for major new restrictions on newly qualified motorists after they pass their tests.
Scots ministers have confirmed it is seeking new powers to implement a tougher form of Graduated Driver Licensing — known as GDL — under which novice drivers would face limits on carrying passengers, restrictions on late-night driving, compulsory “P” plates and potentially stricter drink-drive rules during their first years behind the wheel.
Transport Scotland analysis covering the years 2020 to 2024 has revealed that the casualty rate for 16 to 22-year-old car users was 1.19 per thousand population compared with 0.58 across drivers generally.
Over that period there were nine deaths, 143 seriously injured, and 374 slight injuries.
In its briefing, Transport Scotland says: “The Scottish Government feel that the measures proposed for new and novice drivers do not go anywhere near far enough.”
The Scottish intervention goes beyond measures currently under consideration by Westminster ministers.
While the UK Government is already examining minimum learning periods before drivers can sit a test, Scottish officials say that alone would fail to tackle the scale of serious crashes involving young motorists.
Instead, Transport Scotland is backing tougher post-test restrictions aimed specifically at the period immediately after newly qualified drivers pass.
The memo says newly qualified motorists should potentially faced with the compulsory use of “P” plates identifying them as inexperienced drivers.
It also says ministers should consider introducing a lower drink-drive limit for novice drivers during “the first year or two” after they qualify.
The briefing states: “In respect of the suggested six month minimum driving period we would see this as the very minimum level of restriction that should be introduced.”
Transport Scotland does not specify exact curfew hours or passenger limits.
However, Graduated Driver Licensing systems already operating in countries including Australia, New Zealand, parts of Canada and several US states commonly ban newly qualified drivers from carrying groups of young passengers or driving during late-night hours — often between around 11pm and 5am — unless travelling for work, education or emergencies.
The debate over tougher restrictions for novice motorists intensified after crashes involving young drivers including the 2024 Bannockburn tragedy in which teenagers Jayden McConnell, 17, and Kyle Marshall, 19, died after a Vauxhall Corsa driven by a newly qualified teenage driver crashed on the A91.
Kyle Marshall and Jayden McConnell died in March 2024 (Image: Police Scotland)
The teenagers, both from St Ninians’s, Stirling, were passengers in the car driven by Charles Gray when it spun out of control on a known “greasy corner” near Bannockburn Interchange.
In November, jurors at Stirling Sheriff Court – who had been told Mr Gray had been “the perfect driver” since passing his test a month earlier – took less than two-and-a-half hours to clear the 19-year-old of causing their deaths.
Road safety experts have long identified late-night driving as one of the highest-risk periods for novice motorists because of fatigue, speeding, reduced visibility and distractions caused by groups of young passengers.
Transport Scotland argues the evidence for tougher restrictions is already well established internationally.
“The benefits of a strong GDL system are well documented with numerous international studies showing the associated reduction in KSIs [killed or seriously injured] for this vulnerable group,” the submission states.
“We strongly support the introduction of GDL [including] mandatory learning periods, specific driving experience requirements during training, and post-test restrictions such as limits on passengers, night-time driving and the compulsory use of P plates.”
Scotland’s Road Safety Framework identifies 17 to 25-year-olds as one of the country’s highest-risk groups and has set a target of cutting deaths and serious injuries among them by 70% before 2030.
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The framework forms part of Scotland’s wider Vision Zero ambition aimed at eliminating deaths and serious injuries on Scottish roads entirely by 2050.
Campaigners have argued that Britain has lagged behind other countries in introducing tougher graduated licensing systems for newly qualified motorists.
Road safety organisations including Brake and the RAC Foundation have previously backed restrictions on late-night driving and carrying groups of young passengers, arguing overseas evidence shows the measures reduce serious crashes involving inexperienced drivers.
But opponents of stricter licensing rules have argued they could unfairly affect young people living in rural areas who rely heavily on cars for work, education and family responsibilities because of limited public transport.
Transport Scotland nevertheless, is making it clear they believe stronger action is needed because they feel the current proposals do not match the scale of the danger facing young motorists.
The Scottish Government confirmed it had called for the UK Government to give Scotland the powers needed to implement Graduated Driving Licensing, which they said was “proven internationally and we support its introduction to help save lives and cut serious injuries”.
A spokesman added: “While UK ministers published their Road Safety Strategy in January 2026, they have held a public consultation on the potential of implementing a minimum learning period.
“However, its plans do not go far enough as it does not commit to wider post-test measures to safeguard young and novice drivers. As such, we continue to press for powers to allow us to take further action to enhance young driver safety, including the delivery of national behaviour change campaigns focused on young drivers.”
Transport Scotland has been responding to evidence gathering around the UK Government’s wider road safety strategy.
Countries including New Zealand and parts of Australia already operate staged licensing systems where newly qualified drivers gradually gain full driving rights over time rather than receiving unrestricted licences immediately after passing their tests.
Some systems impose limits on the number of similarly aged passengers newly qualified drivers can carry, while others restrict driving during high-risk late-night hours.
In several countries exemptions are available for work, education or emergencies.
