The purpose of this study was to propose a framework for developing test scenarios for issuance of conditional driver’s licenses. The framework was composed of five stages. Initially, we reviewed the literature on traffic crash characteristics in terms of accident frequency and severity regarding the main factors of crashes caused by older drivers. In the second stage, the characteristics of crashes attributed to non-elderly, early elderly, and late elderly drivers were analyzed using data obtained from the Traffic Accident Analysis System (TAAS), and crash types for elderly drivers were derived. In the third stage, black box videos of high-risk crash types were analyzed to derive crash stories that described the circumstances in which crashes occurred. In the fourth step, crash situations were classified by rating the types of crash stories derived to develop various scenarios. Step 5 involved creating a scenario by applying the PEGASUS 5-Layer format, which has recently been used to develop test scenarios for autonomous vehicles. The results of this study are expected to be used as a basis for developing driving ability evaluation scenarios for the issuance of conditional driver's licenses.