Norway's government is preparing to lower the legal driving age for cars to 17, a significant shift from the current 18-year-old minimum. The proposal, confirmed by senior advisor Kristin Bentdal Larsen at the Ministry of Transport, aims to implement a European Union directive that allows younger drivers to gain experience earlier. The plan mandates that 17-year-old drivers must be accompanied by a qualified adult in the vehicle. Officials are working to align Norway's adoption with the EU's target implementation date of November 26, 2028.
This potential change strikes at the heart of Norway's renowned traffic safety culture. The country consistently ranks as Europe's safest for road users, a point of national pride and a result of decades of stringent policy. Proponents within the government argue that earlier, supervised driving experience will build crucial skills and ultimately reduce accident risk. "Driving experience is important for reducing accident risk," Larsen stated, suggesting it could be positive for young drivers to gain more experience under controlled conditions.
However, the initiative faces immediate skepticism from Norway's leading road safety organization. Trygg Trafikk, a non-profit foundation, warns that importing EU standards could undermine hard-won domestic safety gains. "Norway is the most traffic-safe country in Europe, and it is not certain that this will improve traffic safety here, as it perhaps does in countries that have poorer driver training than us," said press chief Christoffer Solstad Steen.
A Clash of Safety Philosophies
The debate centers on two competing visions of how to create safe drivers. The government's position, shaped by the EU's "Directive on driving licences," emphasizes gradual, supervised exposure. The logic follows a graduated licensing model: more time behind the wheel, under the guidance of an experienced driver, builds muscle memory and judgment before full, independent licensure is granted at 18. Supporters suggest this could smooth the dangerous transition new drivers face when they first drive alone.
Trygg Trafikk's opposition highlights a fundamental tension between EU harmonization and Norway's sovereign policy success. The organization points to Norway's comprehensive driver education system, which includes mandatory theory courses, extensive practical training often on icy winter roads, and a rigorous final test. The concern is that lowering the age, even with an escort requirement, introduces risk to a demographic already overrepresented in traffic statistics without proven benefits in the Norwegian context. The policy works on a continental scale where training standards vary wildly, but its necessity in a top-tier safety regime is questionable.
The Practicalities of Supervised Driving
If adopted, the system would require clear legal and practical frameworks. The role of the accompanying adult—likely a parent or guardian—would need definition. Would they bear legal responsibility in the event of a collision? What qualifications must they hold beyond a full, valid license for the vehicle category? The Norwegian Public Roads Administration would need to develop guidelines for this novel supervisor role within the country's existing traffic law.
Furthermore, the change would impact driver training schools. Would 17-year-olds be permitted to take professional driving lessons, or only practice with their supervisor? How would this supervised year integrate with the existing process of obtaining a full license at 18? These operational details remain unresolved, indicating the substantial regulatory work ahead before 2028. The ministry has confirmed the work is underway but has not released a consultation paper or detailed timeline for domestic legislation.
International Precedents and Nordic Comparisons
Several European countries already permit driving at 17 with an escort, including Sweden, Finland, Germany, and France. Sweden, Norway's closest comparator, introduced a similar system years ago. A Swedish Transport Agency analysis has shown mixed results, with some studies indicating a reduction in crash rates among newly independent 18-year-olds due to their prior supervised experience. However, isolating the variable is complex, as other safety measures were often introduced concurrently.
Notably, the Swedish model requires the accompanying person to be at least 24 years old and have held a licence for the relevant vehicle category for at least five years. Norway would likely adopt similar, if not stricter, requirements. The key question for Norwegian policymakers is whether the Swedish data is directly transferable, given differences in geography, population density, and winter road conditions. Finland's experience with a northern climate may offer more relevant insights.
Potential Social and Economic Ripple Effects
Beyond pure safety metrics, the policy shift carries broader implications. In rural regions of Norway, where public transport is sparse, a driving licence is a key to independence, education, and employment. Allowing 17-year-olds in these areas to begin driving—even with supervision—could significantly improve their access to after-school jobs, sports activities, and social connections. It could ease logistical burdens on families in the districts.
Conversely, in urban centers like Oslo, Bergen, and Trondheim, where public transit is robust and parking is expensive and scarce, the incentive may be lower. This could create a geographical disparity in uptake. The change might also affect the automotive and insurance industries. How insurers will price coverage for 17-year-olds in a supervised role is an open question, potentially influencing the policy's practical affordability for families.
The Path to 2028 Implementation
The 2028 deadline provides a long runway for debate, research, and careful legislative drafting. The Ministry of Transport will need to prepare a formal proposition for the Storting, Norway's parliament. This process will involve public hearings, input from agencies like the Public Roads Administration and the Police Directorate, and scrutiny from the parliamentary transport committee. Given the contentious nature of the change, it is certain to spark vigorous political discussion.
Parties on the political left may align with safety advocates like Trygg Trafikk, emphasizing precaution. Parties more focused on rural issues or deregulation may support the increased flexibility for young people. The minority coalition government will need to build a cross-party consensus to pass the necessary amendments to the Road Traffic Act. The outcome is not a foregone conclusion, despite the government's current work to implement the EU directive.
A Question of National Identity on the Road
At its core, this is more than a technical transport policy adjustment. It touches on Norway's relationship with European integration, its confidence in its own world-class systems, and its vision for youth mobility. Norway is not an EU member but is part of the European Economic Area, which requires adoption of many EU directives, including this one on driving licences. The debate will inevitably include voices questioning whether Brussels should dictate such a core aspect of Norwegian daily life and safety.
Can Norway maintain its gold-standard safety record while adopting a policy designed for a broader, less safe European average? Or will the supervised experience for 17-year-olds become a new pillar of that record, producing even more competent 18-year-old drivers? The government is betting on the latter, while safety traditionalists fear the former. As the ministry continues its work, all eyes will be on the data from neighboring Sweden and the arguments presented in the coming parliamentary debate. The road to 2028 promises to be a long and carefully navigated one.