The Federal Motor Carrier Safety Administration has opened a public comment period on an application from the American Trucking Associations for a five-year exemption. This exemption would let motor carriers that took part in the agency's Safe Driver Apprenticeship Pilot program continue to onboard and train drivers aged 18 to 20. The pilot program ended on November 7, 2025, due to statutory limits. Announced in the Federal Register on January 28, 2026, this notice invites feedback until February 27, 2026, to help determine if the exemption upholds safety standards equivalent to current regulations. The move addresses ongoing trucking industry needs for younger drivers amid workforce shortages, while raising questions about road safety for inexperienced operators in interstate commerce.
Background on Driver Age Requirements
Current federal regulations under 49 CFR 391.11(b)(1) require commercial motor vehicle drivers in interstate operations to be at least 21 years old. This rule aims to ensure maturity and experience, reducing risks associated with long-haul trucking. Exceptions exist in limited cases, such as intrastate operations where states may set lower age limits, but interstate travel demands the higher threshold.
The Safe Driver Apprenticeship Pilot program, launched by FMCSA on January 14, 2022, tested whether younger drivers could operate safely under strict oversight. Authorized by the Infrastructure Investment and Jobs Act, the program allowed 18- to 20-year-olds with commercial driver's licenses to drive interstate after completing probationary periods and using advanced safety technologies like inward-facing cameras and automatic emergency braking. Data collection began in November 2022, and the program ran for three years, as mandated by 49 U.S.C. 31315(c)(2)(A) and 49 CFR 381.505(b)(1), concluding on November 7, 2025.
This is not the first effort to explore younger drivers. In 2003, FMCSA denied a petition from the Truckload Carriers Association for a similar pilot due to insufficient safety data. Later, the Fixing America's Surface Transportation Act of 2015 established an Under-21 Military Pilot Program, providing evidence that informed the broader SDAP initiative.
Details of ATA's Exemption Application
The American Trucking Associations, a major industry group representing trucking companies, submitted the exemption request under 49 U.S.C. 31136(e) and 31315(b). It seeks relief from the 21-year age minimum to allow approved SDAP carriers to keep training apprentices aged 18 to 20. ATA argues that the pilot's quarterly reports show strong safety results, with participants logging millions of miles without reportable crashes.
In its application, ATA highlights minimal administrative burdens for FMCSA and carriers if granted. The group contends that the program's success demonstrates an equivalent level of safety, noting FMCSA's oversight, including removals of non-compliant participants. ATA states, 'FMCSA's SDAP program quarterly reports demonstrate positive safety outcomes, including millions of miles driven by program participants without reportable crashes.' However, FMCSA clarifies in the notice that the program ended as scheduled, not due to early termination for safety issues.
The exemption would apply only to carriers previously vetted for the SDAP, building on established protocols like performance monitoring and technology requirements.
Key Players and Perspectives
FMCSA, part of the Department of Transportation, oversees commercial vehicle safety and must evaluate exemptions based on whether they achieve safety levels equal to or greater than existing rules. The agency has invited public input, emphasizing transparency under the Privacy Act and Freedom of Information Act.
ATA represents trucking interests pushing for workforce expansion to address driver shortages, estimated at over 80,000 positions by industry reports. Supporters argue younger drivers could alleviate supply chain pressures, especially post-pandemic.
Safety advocates, such as the Truck Safety Coalition, often oppose lowering age limits, citing studies showing higher crash risks for younger drivers. For instance, data from the National Highway Traffic Safety Administration indicates that drivers under 21 have elevated involvement in fatal crashes compared to older groups. Labor groups like the International Brotherhood of Teamsters may view this as a threat to job quality, potentially increasing turnover without improving safety.
FMCSA's prior pilots provide context. The Under-21 Military Pilot, referenced in ATA's application, showed comparable safety records for young veterans, suggesting structured training mitigates risks. Yet critics point to broader insurance industry data, where premiums for younger drivers reflect perceived higher risks.
Potential Implications
Granting the exemption could set a precedent for permanent regulatory changes, influencing future legislation on driver qualifications. Short-term, it might help carriers retain apprentices already in training, minimizing disruptions. Long-term, positive data could support broader age reductions, boosting industry recruitment from high schools and vocational programs.
However, denial might reinforce the 21-year standard, prompting calls for more comprehensive studies. Safety remains paramount, with FMCSA required to publish decisions in the Federal Register, including terms if approved.
Different viewpoints highlight tensions between economic needs and public safety. Industry stakeholders emphasize data-driven progress, while opponents stress precautionary principles, drawing on cases like the 1984 Supreme Court ruling in Chevron v. Natural Resources Defense Council, which deferred to agency expertise in regulatory interpretations, though recent decisions have shifted that dynamic.
Forward-Looking Considerations
This exemption request underscores ongoing debates in transportation policy. If approved, FMCSA would monitor outcomes, potentially informing rules under 49 CFR part 381. Challenges include balancing innovation with risk, ensuring robust data collection, and addressing public concerns during the comment period. Future steps may involve congressional action to extend pilot authorities or integrate findings into permanent regulations, fostering a safer, more inclusive trucking workforce.
