It took me next to nothing to get a license in the US. In Germany, it took me months with a minimum set of mandatory lessons required by law - theoretical and practical.
I also don't think the argument about needing a driving license asap on the country side works because it is the same in Germany. Only major cities truly allow you the be car-free. Public transport elsewhere can at least be spotty if not outright disastrous and comparable to the US.
Some of the reasons are:
- When the site is active they often have a need to hold traffic or otherwise alter the traffic pattern to move equipment around. An excavator swinging an arm through the travel lane, loading a dump truck with debris that might fly around a bit, etc.
- The two guys are more efficient than the portable light at moving traffic volumes, since they can extend/shorten cycles as they see fit, and don't have to add in a big extra margin for the last, slowest possible vehicle to get through the work zone. They can see when it's cleared and let traffic through the other direction immediately.
Interesting anecdote: I was driving through North Dakota this summer and hit resurfacing roadworks. It was the first time I've ever seen it, but rather than setting up hundreds of cones and directing traffic through them, then re-arranging the cones to do the other lane, they just had a flagman on each side and a pilot vehicle guiding 10–20 vehicles at a time through the work zone. No cones at all. I'm sure that project was completed in half the usual time.