Case Study: Samoa and Tonga: Using Driver’s Licenses to Improve Women’s Lives

A woman giving a thumbs up standing next to a car with an L plate

Two women proudly hold up an L sign and drivers license

A smiling woman with a flower in her hair fills out a form

Credit: World Bank

A woman standing outside a driver licensing center in Samoa

Three female trainees sitting around a table smiling

Female trainees eating lunch around a table

A woman in an orange vest on top of a large construction vehicle

A woman driving a forklift in an outdoor training area

Female trainees in orange vests sitting around a table

Female trainees sitting around a large table in orange vests

🧩 The Challenge

Women in Samoa hold under 30% of private and only 2% of commercial driver’s licenses. In Tonga, just 15% of commercial licenses are held by women. These low numbers stop women from getting higher-paying jobs driving buses, taxis, or heavy vehicles. Cultural norms, financial constraints, and logistical challenges exacerbate these barriers, particularly in male-dominated transport industries. Addressing these challenges is a critical step in promoting gender equality and women’s economic empowerment.

🛠️ The Intervention

To address these barriers, two World Bank-supported projects—the Samoa Climate Resilient Transport Project (P165782) and the Tonga Climate Resilient Transport Project II (P176208)—are helping women get driver’s licenses in Samoa and Tonga. The projects are informed by surveys in each country which revealed that cultural attitudes, affordability, and limited access to training are the key obstacles facing women drivers. To tackle these issues, driver education and safety programs were specifically designed for women and, in Samoa, the fees for such classes and the licensing fees were waived. In Tonga, the costs were subsidized. National media campaigns aimed to normalize the idea of women behind the wheel were conducted.

Cultural norms in Samoa and Tonga traditionally discouraged women from applying for licenses, especially for commercial vehicles, but outreach campaigns helped shift perceptions. Fee waivers in Samoa and subsidized costs in Tonga made participation more affordable, while institutional support meant the driving program would continue. By overcoming cultural, financial, and institutional barriers, these projects not only empowered women economically but also promoted resilient transport systems.

By the end of the pilot phase, over 120 Samoan women earned private driving licenses, narrowing the gender gap. In Tonga, 15 women completed a three-week commercial driver training program and learned to operate heavy vehicles like loaders and forklifts. Plans are underway to repeat this program in the coming year.

💡 Lessons Learned

Institutional Support: Licensing training was supported by recognized institutions, like Samoa’s Land Transport Authority and, in Tonga, a collaboration with a training and licensing outfit from New Zealand. These organizations gave the program credibility.
Logistical Challenges: Access to vehicles for practice is still a constraint. Future projects could explore partnerships with transport providers to address this gap.
Scalability: These programs’ success in Samoa and Tonga offers a replicable model for other Pacific Island nations.

Note: This case study was based on a desk review of project documents and an interview with Sean Michaels (Senior Infrastructure Specialist, World Bank) and documents provided by Satoshi Ogita (Senior Transport Specialist, World Bank).