Draft Train Driving Licences and Certificates (Amendment) Regulations 2026
(1 day, 8 hours ago)
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The Parliamentary Under-Secretary of State for Transport (Simon Lightwood)
I beg to move,
That the Committee has considered the draft Train Driving Licences and Certificates (Amendment) Regulations 2026.
It is a pleasure to see you in the Chair, Mrs Harris. These draft regulations are being made under the Retained EU Law (Revocation and Reform) Act 2023 to lower the minimum age at which the Office of Rail and Road, or ORR, can issue a licence to drive trains on the British mainline railway from 20 to 18 years.
The conditions for driving trains under the Train Driving Licences and Certificates Regulations 2010, which I shall hereafter refer to as the 2010 regulations, will remain the same. The conditions include the completion of at least nine years of primary and secondary education, or vocational training equivalent to level 3 qualifications, and proof of passing medical, psychological, fitness and general professional competence examinations.
I will begin by providing some background on the legislative regime and why the changes are being brought forward. The rail network depends on approximately 19,000 train drivers to operate passenger and freight services. The 2010 regulations require train drivers to hold a licence confirming that they are fit and competent, and an employer-issued certificate authorising them to drive specific trains on specific routes.
The 2010 regulations implemented the EU train driving directive, which sets a default minimum licensing age of 20 across the EU, and gives member states the option to adopt a lower age of 18 for domestic services. The UK did not take that option when it transposed the directive in 2009, but other countries, including Germany and the Netherlands, have since done so successfully.
In February 2024 the Rail Safety and Standards Board, or RSSB, published research on lowering the minimum age to be a train driver in Britain. It found that 18 and 19-year-olds can drive trains safely when held to the same standards as older recruits. Crucially, the research found that training, practice and exposure to train driving, not age, are the determining factors in whether a train driver will perform the responsibilities of the role effectively. Support for lowering the minimum age was reaffirmed in May 2023, post the implementation review of the 2010 regulations.
That research prompted the previous Conservative Government to consult on the proposal. The consultation, published in May 2025, showed broad support from major industry bodies, including ASLEF and the train operators.
Laurence Turner (Birmingham Northfield) (Lab)
I thank the Minister and the Government for bringing forward this secondary legislation. As he knows, there is a need to improve the diversity of the driving workforce and to address the challenges of an ageing workforce, so this is a much-welcomed change and a fantastic example of industry, Government and unions working together to deliver for workers and the travelling public. Will he join me in recognising the role that ASLEF, the train drivers’ union, played by working with industry and with the Labour party in opposition to help secure this important change?
Simon Lightwood
I thank my hon. Friend for his intervention. We are proud to be able to contribute towards diversifying the occupation of train driver and giving more people access to becoming drivers and working on the railway. Lowering the age of driving is just one step in the process, of course, and moves us closer to delivering a railway fit for the future. We are grateful to ASLEF for drawing this needed legislative change to our attention, and for working with us in Government to lower the driving age and to deliver the Railways Bill.
For the reasons that I have set out, on 7 May 2025 my Department confirmed that we will proceed with lowering the minimum age to be a train driver, bringing Great Britain in line with many international counterparts. To ensure a smooth transition, we asked the industry to prepare an implementation plan, which was used to inform a timetable for changing the law. The Rail Delivery Group gathered industry specialists, who confirmed that existing safeguards, testing and supervision remain appropriate for younger entrants, reconfirming that a lower minimum age for train driving can be introduced safely.
The Department and the ORR approved the implementation plan in December 2025 and published it on gov.uk on 19 March 2026. The plan proposed improvements that industry will implement to strengthen recruitment, assessment, management and training for all new drivers, not just younger applicants. The improvements include preparing formal guidance for operators to ensure recruitment, training, safeguarding and management practices are updated to support line managers and younger drivers, strengthening entry routes and training through revisions to the train driving level 3 apprenticeship standard, and the development of a new foundation apprenticeship.
Other proposed improvements include developing a communications plan to raise awareness of the new opportunities afforded by the change in law and how applicants can prepare, developing a new recruitment portal with resources and information to support applications for train driving roles, working with pathfinder operators to identify and share best practice, and running a long-term study to monitor the effects and experience of the change to help to refine the system over time. The industry has assured us that the arrangements will be in place by June of this year, which is why we have scheduled this legislative change to take effect on 30 June 2026. From that date, young people will be eligible to apply for train driving positions.
I turn now to the reasons why the Government are bringing forward these regulations. The rail industry is facing significant skills shortages, particularly in train driving. Around 25% of the current workforce are expected to reach retirement age by 2030. We project a deficit of 2,500 train drivers by the end of the decade unless action is taken. It is imperative to address that retirement cliff edge, which risks the industry’s ability to maintain current service levels; indeed, operators are already reliant on overtime for sustained timetables. Lowering the minimum age of train drivers will not on its own solve train driver shortages—it is the responsibility of operators to take steps to secure their workforce—but it is an important first step. The current minimum age of 20 acts as an arbitrary barrier to entry to the profession. By that age, many young people have already committed to other employment, vocations or study. Lowering the minimum age to 18 will allow operators to engage school leavers and offer a clear, structured route into a highly skilled and respected profession.
This policy is about not only creating new opportunities for young people, but taking decisive action to ensure that the railway remains resilient, safe and properly staffed for the future. Alongside this measure, we will be working with industry to support an increase in training capacity to ensure that more train drivers are trained into roles and put into service. The policy’s aims are therefore clear: to lower the average age of the driver workforce, increase the number of train drivers in the industry, and create a more stable and diverse profession that reflects the communities it serves.
I now turn to questions raised by the scrutiny Committees in their consideration of the draft regulations. The Joint Committee on Statutory Instruments considered the draft regulations on 4 March and did not draw special attention to them. The Secondary Legislation Scrutiny Committee had some questions concerning implementation and policy aims. and wished to draw the special attention of the House to them in its 52nd report, published on 26 February. I will outline and respond to those questions in turn.
First, the Committee asked how regulations will support 16 and 17-year-olds into train driving, and whether the minimum age for the train driving level 3 apprenticeship could be lowered. Since our announcement, my Department has worked with the Rail Delivery Group, Skills England and the Department for Education to explore that. As a result, the minimum entry age for the train driving apprenticeship will be reduced from 18 to 17 and a half, with the intention that that should take effect alongside the regulations. The practical effect of that is to allow young people to begin classroom learning and supervised practical training earlier, while remaining fully compliant with the Working Time Regulations 1998.
Secondly, the Committee asked when the implementation plan would be published. The plan was issued on 19 March and is available on gov.uk. The period between the laying of the regulations on 10 February and 19 March was needed to finalise the apprenticeship offer and ensure that it aligned fully with the new licensing arrangements.
Thirdly, the Committee asked whether there will be a clear pathway for 16-year-olds, so that the train driving apprenticeship becomes a viable option for school leavers. Alongside lowering the eligibility age for train driving apprenticeships, the industry is developing a rail foundation apprenticeship for 16-year-olds, providing a structured skills route into driving. Additional access courses have also been developed to help school leavers to build the non-technical skills needed for driver assessment and selection.
Fourthly, the Committee asked for assurance on operational safeguards and oversight. I can confirm that all existing testing and competence requirements will remain in place. In addition, the implementation plan specifies that operators will update internal procedures and safeguarding arrangements for younger trainees. We expect operators to share learning and best practice to support long-term implementation. That will be formalised through a 10-year longitudinal study to monitor the progression, wellbeing and performance of younger drivers, providing a clear mechanism for oversight.
Fifthly, the Committee asked about the timetable for wider reforms to the train driver licensing regime, noting concerns about training capacity and projected shortages. Reasons for projected shortages and capacity issues vary across operators and across the country. The Department is developing proposals to reform the 2010 regulations to address those issues and intends to consult on them between 2026 and 2027, as part of the transition towards Great British Railways. We will look to GBR to provide strategic leadership on this matter in the long term.
Finally, the Committee asked whether the findings of the longitudinal study will be published. The study will be led by the industry through the Train Drivers Academy, and the Department has been assured that the results will be published annually, ensuring transparency and continued scrutiny.
In summary, these regulations lower the minimum age at which an individual may be issued a train driving licence from 20 to 18, provided that they meet the same rigorous licensing conditions that apply to all drivers, which will remain unchanged. The change in law is scheduled to come into force on 30 June 2026, enabling young people from across Great Britain to apply for train driving positions from that date. I commend the regulations to the Committee.
Mr Richard Holden (Basildon and Billericay) (Con)
It is an absolute pleasure to serve under your chairmanship, Mrs Harris.
Today, the Minister will be pleased to know that the Opposition are fully and wholly supportive of his measures to deregulate this sector. Bringing young people into any industry is essential if we are to adapt to the modern world and deliver the services customers deserve into the future. The industry deserves the fresh impetus that is often brought by young people looking to establish themselves.
The National Skills Academy data used by the Government for their proposals show that fewer than 3% of train drivers are currently aged under 30 and, with countries across the continent having an age limit lower than our own and operating safely, these measures are welcome. The last Government wisely brought forward the consultation on this issue, which this Government are building upon, engaging with industry and finding widespread support among key stakeholders.
In principle, there are clearly compelling reasons to back these regulations. Bringing them forward represents confidence in the next generation; bringing people into the workforce is essential if we are to have the skills necessary to operate the railways well into the future.
I am glad for the explanations the Minister has provided on how this will work in practice, and some of the things he mentioned relating to the Secondary Legislation Scrutiny Committee in the other place. There are still some concerns around the gap between the actual licensing regime and whether this policy will, in fact, lead to some of the numbers needed to meet the challenges the Minister has outlined. I ask him to address a couple of points.
The Government have said that the industry is working with Skills England to reduce the apprenticeship age of entry from 18 to 17 and a half, but there appears to remain a slight lack of detail regarding support for those aged 16 and 17 looking to establish themselves in the sector in future, given that by that age many may have already chosen different educational paths. Can the Minister update us on that, or perhaps write to me about it to say what the Government aim to do to ensure that the widest number of young people, from whatever background, are able to get into the sector? That would be very much appreciated.
At the same time, it is very good to hear about the foundation apprenticeships for some of those earlier age groups. However, it has been pointed out that if the Government truly want to ensure the widest possible profile of a workforce, they may need to consider other working practices that need changing in future, such as Sunday working and other restrictive measures regarding the use and training of drivers.
I also ask the Minister to reflect on why this is limited to trains. I absolutely agree with him that the 20 years of age threshold is an arbitrary barrier. That is the same for other parts of the transport sector, which we should also be looking to encourage young people into, particularly where there are skills shortages.
The last Government also published a consultation, started when I was a junior Minister in the Department for Transport—it seems to have gathered dust somewhat—on allowing bus and coach drivers to undertake longer journeys starting at an earlier age, to provide them with better career prospects and enable them to get into their desired profession. I fail to see why a younger person might be allowed to enter a cab and learn to prepare to drive a five-car class 802 train that could weigh well over 250 tonnes and travel at speeds of more than 100 miles an hour, but not get comparable freedoms to drive buses over slightly longer distances.
This question is particularly important given the comparable challenge of the demographics of both parts of the transport sector. The average age of a bus or coach driver is currently around 52. Why is reducing the age limit for train drivers going full steam ahead, yet we do not seem to get the full zip from the Department when it comes to bus and coach? The Government talk about the importance of the interconnectedness of transport, but they do not seem to have extended that in this sector at the moment.
I would like to hear what the Minister has to say on that, but overall I very much welcome these proposals and hope they are implemented effectively so that young people can access these schemes. However, this is just one of many steps that we must take to open up opportunities to young people across transport. We need this attitude across the entirety of the DFT, ensuring that those who can contribute and help our sector are not curtailed by long-standing and unhelpful working practices.
Edward Morello (West Dorset) (LD)
It is a pleasure to serve with you in the Chair, Mrs Harris. I see a lot of familiar faces from the Railways Bill Committee— I worry that I have become a member of a group I never aspired to join.
I am here to speak on behalf of the Liberal Democrats; we support this statutory instrument, which lowers the minimum age to obtain a mainline driving licence in Great Britain from 20 to 18, while maintaining the age of 20 for drivers operating in the channel tunnel zone, in line with international agreements. This SI removes an arbitrary barrier that has prevented the rail industry from recruiting directly from school leavers, at a time when the workforce is ageing, we are facing significant shortages and young people are struggling to find employment opportunities.
The regulations do not alter existing safety requirements, or mandatory medical, psychological and competency assessments, which remain in place. A 2024 Rail Safety and Standards Board report concluded that there is no evidence that 18 or 19-year-olds pose a higher safety risk than older drivers. Safety is driven by robust training and supervision standards, rather than age alone. Overall, despite some industry concerns, this is a proportionate and evidence-based reform that supports the long-term resilience of the rail network. As Liberal Democrats, we are always happy to see the UK aligning with our European neighbours on this issue.
Simon Lightwood
I thank the Conservative and Liberal Democrat spokespersons for their contributions. The right hon. Member for Basildon and Billericay is quite right to mention those stats on the challenges we face. The average train driver is 47 years old, with 40% of drivers over the age of 50 and just 4% under the age of 30. That trend is set to continue, and we expect 25% of train drivers to reach retirement age by 2030.
Turning to other industries, the right hon. Member mentioned coach and bus, but in his time as the Buses Minister he also did not take that forward. We did a consultation in 2024 and we are looking at the topic. We will continue working with Confederation of Passenger Transport and the Road Haulage Association before we take any action, to ensure that it is evidence led and safety focused. But indeed, 18-year-olds can fly planes and join the armed forces; surely they can drive our trains.
The right hon. Member also asked about available routes into train driving for school leavers aged 16 and 17. They will have several clear routes. First, a new rail foundation apprenticeship is being developed for young people from the age of 16; it will introduce them to the rail environment and help them to build the technical and behavioural skills needed before progressing to a full train driving level 3 apprenticeship. Secondly, the minimum age for entering the train driving level 3 apprenticeship will be lowered from 18 to 17 and a half. That will allow young people to begin classroom learning and supervised practical training earlier. Thirdly, operators are preparing new access and preparatory courses that will help school leavers to develop the essential non-technical skills required for the driver assessment process. Together, those pathways will provide a structured and well supported opportunity for 16 and 17-year-olds to prepare for a career in train driving before they are eligible for a licence at 18.
To conclude, these regulations deliver a focused and widely supported reform. They lower the minimum licensing age from 20 to 18 while fully ensuring that the safety, medical and competence standards that underpin the railway are maintained. These changes will widen opportunities for young people and help operators draw from a broader talent pool at a time when many experienced drivers are approaching retirement. In doing so, the regulations will help to build a more resilient, diverse and sustainable driver workforce and secure the long-term future of our railways. I urge the Committee to support these measures and approve the regulations.
Question put and agreed to.