A Motorcycle Safety and Transport Policy Framework
Summary
CBT was implemented over 25 years ago. It remains popular and when riders receive the correct training in line with DVSA requirements it is an effective training course. Much has been learned since CBT was developed and it is now time to review and improve CBT to improve safety for novice riders. NPCC and MCIA wish to work closely with the DVSA and support changes from the DfT/DVSA CBT Review.
Description
CBT is widely accepted, highly regarded and popular and has a historically proven syllabus. When delivered professionally by well-trained Instructors it is highly effective and gives an excellent grounding for new motorcyclists. MCIA have long held the view that CBT would benefit from a review (but not necessarily a rewrite).
In 2014 DfT and DVSA commissioned a research project involving both motorcycle trainers and the novice riders themselves (Learners and trainers perceptions of motorcycle CBT by SPA Future Thinking). This research was welcomed, as it considered opinions from both those who carry out CBT training, and those who come forward to take CBT courses. The research project provided some excellent insight into CBT both its strengths and weaknesses.
Prior to the research project starting, MCIA and MCITA submitted papers to the DVSA providing the views of the wholesale side of the motorcycle industry, along with those of ATB owners. The views of both organisations have proved to be largely in line with the findings of the DfT/DVSA research and there is much agreement with recommendations coming from the research project.
MCIA and MCITA Views of CBT
The motorcycle industry is of the view that overall the basic syllabus/format of CBT is still correct. More action is needed to police standards and an improvement on the quality assurance process and actions to remove those offering substandard training. Different certificates for automatic and manual motorcycles and scooters are also needed (in the same way as the licencing regime differentiates this for both cars and motorcycles) and a register should be created to enable police and insurers to have a better record of a rider’s status.
Theory Knowledge
As mentioned in Action 4, MCIA believes that the best way to improve road safety would be to require a Theory Test pass for provisional licence applicants (for all modes of transport). In terms of CBT, this would reduce the need to check the knowledge of candidates and free up time to concentrate on other skills such as hazard awareness or defensive riding which will positively impact rider safety and will also ensure that riders get maximum benefit from the minimum two hour road ride.
Repeat CBTs
Whilst we have said that the existing syllabus remains very relevant and does not need completely redeveloping, there is scope for some changes to further improve CBT training. A different syllabus for ‘returning CBTers’ has been called for. There is little value in teaching someone who has ridden for two years how to fasten a helmet.
Subsequent CBTs for those that choose to repeat CBT after two years should be enhanced and teach additional skills, not necessarily just a repeat of the original CBT and many ATBs already do this. The ‘Repeat CBT’ could be used to extend rider skills and be heavily road based, which will help encourage more people to take the test as they will be getting closer to test standard.
Insurance companies have advised that they would like to see more emphasis on the dangers of riding too close to vehicles in front and on defensive riding. There could be more emphasis on attitudinal training and perhaps more emphasis on cornering (in the off-road section) or filtering, overtaking and bend planning which are not routinely covered in CBT could be added.
This approach as well as getting riders closer to test standard, would also improve rider skills and safety rather than maintaining them at the basic CBT level. This is currently a lost opportunity to improve rider safety.
Auto V Manual CBTs
MCIA would like to see all CBT certificates issued with an annotation restricting the rider to the type of motorcycle that they trained on (manual or automatic machine) in the same way that car drivers are restricted to an automatic car if the test is taken using a vehicle with an automatic gearbox. In relation to this, there should be a simple ‘upgrade CBT’ option for riders who have taken an automatic CBT and now want to ride a manually geared motorcycle. There would be no need for the ‘upgrade’ to train the rider how to fasten a helmet again; the upgrade would focus on the machine specific differences.
Digital Record Keeping
There is currently no way of identifying who holds a CBT certificate, and whether it is a first or repeat issue. Insurers and the Police have expressed a view that they should be able to access such information. We feel strongly that this information should be recorded and DVSA have indicated that this is a possibility although this may take some time to develop.
Quality Assurance of CBT
MCIA believes that the ratio of ‘rogue traders’ is high and CBT standards overall cannot be improved by a syllabus review unless this area is further strengthened by better quality assurance as a matter of urgency. Quality assurance has been mentioned in some detail in but fundamentally the current check every 4 years is not sufficient, and alternative arrangements need to be made. The DVSA are working on improving this area of their work which is a welcome step forward but it is a challenging area and is unlikely to go far enough. However we look forward to finding out more details and working with the DVSA wherever possible. Both legislative and voluntary arrangements could be considered, although voluntary measure should be taken as a stepping stone towards a mandatory system.
Additional to the above, other steps that were mentioned by MCITA’s ATB members for consideration by DVSA included.
- Unannounced DVSA visits, with overt and covert surveillance
- Mystery shopping, including enquiry phone calls
- More freedom for DVSA to act on bad practice
- Customer feedback collected from CBT customers to ensure they received the correct training
- Customers to be better informed about the content of a CBT. In addition, a confirmation should be received from the customer upon course completion that all elements have been covered. This could include start times on CBT certificates, information on the back of a CBT certificate or information sent to them before the CBT takes place
- DVSA to analyse the number of DL196’s certificates issued by an ATB in relation to the number of registered instructors
Some of these suggestions have been accepted and are currently being worked up by DVSA, but not all of these have been acted on – for example there is no plan to sample customers to check on the standard of training received, or the development of CBT plus for those who routinely repeat CBT.
Whilst CBT itself is being reviewed, it is important to consider the qualification of ‘down trained’ instructors. Industry believes that as a minimum all down trained Instructors should be observed by DVSA (at their place of work) before they are able to train novices without supervision.
CBT Review Progress
Considerable progress has been made in the following areas, and is very welcome
- Ensuring that CBTs are made specific to either Automatic or manual machines
- Better knowledge of the Highways code by CBT students
- Digital recording of CBT passes
- Substantial changes to the 4 yearly standards checks
- Unannounced visits by DVSA and a better procedure is being developed to allow the DVSA to remove those who short-cut legislative guidelines
Findings from the DfT/DVSA Research Project
‘Learners and trainers perceptions of motorcycle Compulsory Basic Training’ has proved to be a very informative and useful document. Industry welcomes the comprehensive recommendations, many of which mirror the concerns of the MCIA’s members and the ATBs who are part of its sister organisation MCITA.
As well as addressing the concerns of the Instructors themselves, the report also contains some very useful demographics about those taking CBT and their motivation to ride a motorcycle. The research report can be viewed here: https://www.gov.uk/government/ uploads/system/uploads/attachment_data/file/380799/cbt-learners-trainers-report.pdf
As part of NPCC/MCIA/Highways England Motorcycle Safety and Transport Policy framework we welcome the opportunity to work with DVSA to assist with implementation of all of the suggested recommendations. We would however wish to see the necessary changes made to legislation to make these recommendations into mandatory legal requirements for all ATBs, not just those who are following DVSA best practice guidelines and delivering high quality training. Without this there is the potential for less scrupulous ATBs to capitalise further on offering cut price sub-standard services whilst professional businesses strive to meet the voluntary standards.
We recognise that changing legislation is often a protracted process and believe that in the short term many changes could be made on a voluntary basis. This would need to be subject to the DVSA/DfT offering a commitment to create the necessary legislation. The voluntary changes will also need to be promoted to customers as ‘best practice’ and customers encouraged to seek out ATBs providing the new requirements.
The rider training industry has been subject to a ‘sticking plaster’ approach, patching up immediate problems rather than curing the underlying issue, for too long. Any voluntary arrangements are likely to add to the ‘plaster’ approach and should not be seen as the end of the issue but may be effective as a stepping stone towards the final solution.
For any voluntary arrangements to provide benefits to learner riders it is important to note that 47% of the learner riders surveyed claimed a high or fair level of understanding of CBT and its requirements. This means that more than half of learners had either a low level or no understanding of CBT before their training started. Customer information has long been a topic of discussion with DVSA. After all if a customer does not know what to expect they cannot know if they have received good, bad or indifferent training. Any voluntary improvements make this information provision even more important, and there must be an improvement in the information made available to customers looking to choose a CBT provider.
New Riders – Learning from other modes
We believe in taking a proactive approach to road safety by trying to prevent incidents from happening instead of waiting for the incident to occur and then trying to resolve the causation. In order to try to future proof the network with the customers of tomorrow it is important to engage with those people who are wanting to learn, and or are already learning to drive. To do this successfully Highways England are working in partnership with the DIA to develop a new drivers initiative which the driving instructors can use throughout lessons, and learners can use inside and outside of the learning environment to specifically look at the risks and mitigating actions which can be taken to reduce the risk of being injured on the network. We plan to pilot this for motorcycle riders and if successful this can become a national initiative.
Next steps:
- Assist DVSA in the implementation of actions outlined in the CBT review
- Ensure the opportunity for change is maximised to improve motorcycle safety, whilst protecting the livelihoods of ATBs
- Continue to discuss the CBT review report recommendations and any other related suggestions for change that could be considered at the same time
- Develop actions and timescales to achieve aims for both short term voluntary changes and the longer term and legislative changes that could be made
- Pilot Highways England’s new driver project for riders
Progress
UPDATE – Action 12 – Review and Update Compulsory Basic Training (CBT)
Following on from the DfT/DVSA research report ‘Learners’ and trainers’ perceptions of motorcycle Compulsory Basic Training’ of 2014, the DVSA have announced their intention to consult stakeholders on specific actions on the following areas.
- Ensuring that CBTs are made specific to either Automatic or manual machines,
- Better knowledge of the Highway code by CBT students
- Digital recording of CBT passes
- Unannounced visits by DVSA and a better procedure is being developed to allow the DVSA to remove those who short-cut legislative guidelines
The consultation is expected in autumn 2016. Further progress will be dependent upon consultation responses.
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