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Kid's driving around at 16 and 17 are not responsible enough to be driving around, why would lowering the age make a difference. If anything it would make it worse.
They'd be more focused on their phones, or changing a song on their iPod to be worrying about the road.
I know kids at those age will start to date, and want to go the mall with their friends and stuff, but there is nothing wrong with getting someone to drive them around.
15 is too young to have people start driving. There is too much responsibility that comes with driving for them to be able to handle.