6th Report of Market Access Ombudsman Council (March 16, 2000)

3-(5) Report on study for establishing new categories of towing licenses

1. Agency concerned: National Police Agency

2. Background:

Since the maximum weight of vehicles which may be towed by holders of an ordinary driver's license is 750 kg, drivers must obtain a separate license for towing camper-trailers (which usually weigh approximately 2 tons). However, there is currently only one type of towing license, which places no restrictions on the weight of the towed vehicle, and since drivers wishing to obtain a towing license must learn advanced driving skills which are not necessarily needed when towing a camper-trailer, the complainant stated that separate categories of towing licenses based on the weight of the towed vehicle should be established.
In the comprehensive review of work on complaints before the OTO carried out in 1998, the Office of Market Access had decided that a study concerning establishing separate categories of towing licenses should be initiated as soon as possible, and that a report on study findings be presented to MAOC during 1999.

3. Contents of report:

(1) Findings concerning usage of camper-trailers

Between September and October 1998, the Tokyo Metropolitan Police Department surveyed all applicants for new towing licenses and for towing license renewal at driver's license examination centers, concerning possibility of using or usage of camper-trailers. (A total of 327 individuals - 123 applicants for new licenses and 204 persons renewing - were surveyed.) New license applicants were asked to answer a multiple answer question concerning the type of vehicle they were planning to drive after obtaining a towing licenses, and 13.0% answered a "camper-trailer." Among applicants for renewal, who were asked a multiple answer question about the type of vehicle they currently towed, 4.9% answered a "camper-trailer." In other words, survey findings indicated that needs for a license to tow camper-trailers were not necessarily widespread but existed among a certain percentage of drivers.

(2) Findings concerning characteristics of accidents involving towed vehicles, by weight

The Institute for Traffic Accident Research and Data Analysis analyzed the characteristics of accidents involving towed vehicles, by weight, based on figures for accidents involving personal injury between 1995 and 1997. Among the 6,052 accidents involving towing by large vehicles (weighing 3 tons or more), the fatality rate was 3.9%, and 10.8% of accidents involved serious injury. Among the 2,201 accidents involving towing by sub-compact vehicles (weighing under 3 tons), the fatality rate was 0.6%, and 10.8% of accidents involved serious injury.
Most towed vehicles are large vehicles. The number of vehicles which may be towed by small vehicles is small. Therefore, although the ratio of fatal accidents to total accidents is small in the case of small vehicles, the rate of accidents occurring during towing is not low, considering that towing is infrequent.

(3) Findings concerning accidents involving light towed vehicles

When police departments in all prefectures throughout Japan surveyed accidents occurring between November 1998 and June 1999 involving vehicles towing lightweight (750 kg or less) vehicles as the primary party, the number of accidents was low, there being only two accidents involving property damage during this period.

4. Results of deliberation:

According to the agency concerned, approximately 30,000 persons obtain a 1st class 1 towing license every year. The vehicle used for the towing license test is not very large (the towing vehicle weighs 3.3 tons and the towed vehicle 1.9 tons, for a total combined weight of 5.2 tons), and applicants' skills driving on S-shaped curves and reversing direction by backing up, maneuvers essential when driving, are tested. On the other hand, the agency wishes to conduct a separate study on accident rates for camper-trailers and for other types of towed vehicles exceeding 750 kg in weight and to investigate whether there are differences in driving skills for the respective types of towed vehicles.
The issue in this case is that only one type of test towing and towed vehicles respectively is used when testing for towing licenses. Accordingly, in addition to clarifying the issues, a further study should be conducted to determine whether it is necessary to establish categories based on the weight of the towed vehicle, when towing license testing is carried out.

Based on the above, the following actions should be taken regarding establishing different towing license categories:

(1) The agency concerned should study whether it is necessary to establish categories based on the weight of the towed vehicle when towing license testing is carried out, and reach a conclusion during 2000.

(2) Specifically, a detailed analysis of the accident rate and characteristics of accidents involving camper-trailers weighing over 750 kg and not more than about 2 tons and other towed vehicles should be carried out as soon as possible.

(3) A study of whether there are differences in driving skills needed when towing camper-trailers weighing over 750 kg and not more than about 2 tons and other towed vehicles should be carried out as soon as possible.

Government decision (March 21, 2000)

3-(5) Establishing new classes of towing permits

The following measures will be taken regarding establishing classes of towing permits.

(1) A study will be conducted concerning whether it is necessary to establish classes for towing permits, based on the weight of the towed vehicle, and a conclusion will be reached during 2000.

(2) Specifically, a detailed analysis of the accident rate and characteristics of accidents involving camper-trailers weighing between 750 kg and 2 tons and other towed vehicles will be carried out as soon as possible.

(3) A study of whether there are differences in driving skills needed when towing camper-trailers weighing between 750 kg-2 tons and other towed vehicles will be carried out as soon as possible.