Kevin Russell v The Registrar of Approved Driving Instructors

Background to Appeal

1. This appeal concerns a decision of the Registrar of Approved Driving Instructors (“the Registrar”) made 14 th February 2024 to refuse to grant the Appellant a third trainee licence.

2. The Appellant is a trainee driving instructor who was granted a trainee licence under s.129 of the Road Traffic Act 1988 (‘ http://www.legislation.gov.uk/ukpga/1988/52/part/V/crossheading/licences the Act ’) for a six-month period, and then another, but was refused a further licence at the end of the relevant period.

3. The Registrar’s reasons for refusal, in summary, were that the Appellant had not passed the final part of the ADI qualifying examination within the relevant period and as insufficient evidence of loss of training time was supplied that the Appellant had had long enough to progress, and the application to issue a third trainee licence was therefore refused.

4. The Appellant now appeals the Registrar’s decision. Appeal to the Tribunal

5. The Appellant’s Notice of Appeal, dated 17 th August 2024, indicates that there was a considerable delay in obtaining his second attempt at his Part 3 examination due to the “COVID backlog” and issues with his local test centre. He asks for a third licence to allow him to teach whilst waiting for his third attempt.

6. The Respondent submitted a Response indicating that the decision letter sets out their position. The Registrar points out that the Applicant had sufficient time to progress.

7. The Registrar indicates that the Appellant has failed his Part 3 twice, but no further test was booked.

8. The Registrar indicates the Appellant has been licensed from 17 th July 23 to date, a period so far of 17 months. Mode of Determination

9. The Tribunal considered the appeal on the papers, the Appellant and Respondent agreeing to such a determination. In accordance with the Tribunal Rules the Tribunal assessed whether it was right and proper to continue on the papers and came to the clear view to do so would be fair to all.

10. The Tribunal considered a bundle of evidence containing 20 pages. The Law

11. The grant of a trainee licence enables applicants to provide instruction for payment before they are qualified. The circumstances in which trainee licences may be granted are set out in s. 129 of the Act and the Motor Cars (Driving Instruction) Regulations 2005 . http://www.legislation.gov.uk/uksi/2005/1902/pdfs/uksi_20051902_en.pdf

12. A licence under section 129(1) of the Act is granted: ‘for the purpose of enabling a person to acquire practical experience in giving instruction in driving motor cars with a view to undergoing such part of the examination… as consists of a practical test of ability and fitness to instruct ’.

13. In order to qualify as an Approved Driving Instructor, applicants must pass the Qualifying Examination. This comprises: the written examination (‘Part 1’); the driving ability and fitness test (‘Part 2’); and the instructional ability and fitness test (‘Part 3’). Three attempts are permitted at each part. The whole examination must be completed within 2 years of passing Part 1, failing which the whole examination has to be retaken.

14. If a candidate has passed part 2, they may be granted a trainee licence. However, holding a trainee licence is not a prerequisite to qualification as an Approved Driving Instructor and many people qualify as an Approved Driving Instructor without having held a trainee licence.

15. The powers of the Tribunal in determining this appeal are set out in s. 131 of the Act . The Tribunal may make such order as it thinks fit.

16. When making its Decision, the Tribunal stands in the shoes of the Registrar of approved Driving Instructors and takes a fresh decision on the evidence available to it, giving appropriate weight to the Registrar’s decision as the person tasked by Parliament with making such decisions. The burden of proof in satisfying the Tribunal that the Registrar’s decision was wrong rests with the Appellant. See R (Hope and Glory Public House Limited) v City of Westminster Magistrates' Court [2011] EWCA Civ 31 . http://www.bailii.org/ew/cases/EWCA/Civ/2011/31.html . Approved by the Supreme Court in Hesham Ali (Iraq) v Secretary of State for the Home Department [2016] UKSC 60 at paragraph 45 – see https://www.supremecourt.uk/cases/docs/uksc-2015-0126-judgment.pdf . Conclusion

17. The Tribunal considered carefully all the papers before it.

18. In fixing a period of 6 month to allow for trainee instructors to progress Parliament must have had in mind that we are all subject to differing life events that affect our ability to undertake certain tasks. Sometimes those events are so unusual or have such a bearing on an individual that it will be entirely appropriate to find that a longer than normal period of time should be allowed to complete a task. Here the Appellant provided no basis at all to justify a further licence. No loss of training time is indicated. The application is completely without merit.

19. The Appeal is dismissed. The Appellant has had more than long enough to pass the relevant examination.

20. The Appellant is still able to attempt his Part 3, if he wishes to, and the Tribunal wishes him well if he so chooses. (Signed) HHJ David Dixon DATE: 16 th December 2024