No waiver of the traffic safety education course requirement for applicants under the age of 18 years shall be issued unless the parent, guardian, responsible adult as defined in RCW 46.20.075 (9)(b), or other person having the care, custody and control of the applicant certifies that the applicant is:

(1) Unable to take or successfully complete a traffic safety education course and the reasons therefor; and

(2) That there exists a need to operate a motor vehicle. The need shall be set forth in as much detail as possible. For the purpose of meeting this requirement, "a need exists" shall be construed to mean that the capability to drive will reduce or help eliminate the negative consequences of the situation that created the need to drive. If operating a motor vehicle does not reduce the hardship which was created by the situation, "a need" does not exist.