The bill, which addresses community concerns about young motorists, adds a third step to the driver licensing process by creating a restricted provisional license for 16- and 17-year-olds. Final approval is expected next week.

"This is a milestone," said Robert Lung, traffic administrative sergeant for the Honolulu Police Department, which pushed for the bill.

Currently, instructional permits can be issued at age 15 1/2, and full licenses can be obtained at age 16 if the permit has been held for six months.

Under the bill, the provisional license can be granted if the person has held an instructional permit for at least six months and has completed a driver's education course.

The provisional licensee cannot have more than one unrelated passenger under the age of 18 who is not a member of his or her household without being accompanied by a parent or guardian who is a licensed driver. But family members are not limited.

However, the provisional licensee must be accompanied by a licensed parent sitting next to him or her between the hours of 11 p.m. and 5 a.m.

The 16- and 17-year-olds are allowed drive without a parent between during those hours to and from work or a school activity if driving is necessary for that purpose.

The driver is allowed only one passenger under the age of 18. The driver also must have in the vehicle a signed statement from the employer verifying work hours or from a parent verifying that driving the vehicle is necessary for the school activity.

Teens can obtain a driver's license if they have held a provisional license for at least six months and are at least age 17.

The proposed law also provides for penalties, including revocation of the provisional license, for violations of the license or traffic offenses.

The Senate Judiciary Committee amended the bill to require the state to compile and analyze traffic and accident data to determine the effectiveness of the graduated licensing program in reducing traffic fatalities and accidents.

The committee's report also said the program may have an impact on car insurance rates, and suggested that an insurance rollback program be studied for possible implementation in the future.

The program would take effect next Jan. 6, and will remain in effect for five years.

"It's a compromise but not a great one," said Carol McNamee, founder of the Hawai'i chapter of Mothers Against Drunk Driving.

She is particularly concerned about the provision that would allow more than one family member under the age of 18 to travel with the provisional driver.

"The problem is the more passengers in a vehicle, the more chance for crash injuries and death," McNamee said.

But Lung said he is "very satisfied" with the bill, which also had the support of all the county police departments.

"Provisional licensees will get more supervision, especially at nighttime," he said. "Having a parent in the car provides more control."

Lung said he doesn't think enforcement will be a problem, but said, "We won't know what the problems are until it goes to court."

Illinois has had a large drop in fatalities among the affected age group in the year it has had the program, McNamee said. Hawai'i is one of the last states to adopt a provisional licensing program, she said.