The State's 400,000 provisional licence holders may be prevented from driving without a qualified driver accompanying them, under a new clampdown proposed by the Road Safety Authority.
At the moment drivers on their second provisional licence are deemed to be experienced and are not required to have an accompanying qualified driver.
However, the authority maintains this concession has been abused and points out that just 140,000 provisional licence holders have applied for a test.
The authority believes almost 30,000 drivers are on a fifth or subsequent licence, which would indicate that they have been driving for at least eight years without passing a test.
Although drivers are required to apply for a test after their second provisional licence, they may still apply for a third licence if they fail to sit the test or if they fail it.
Under a new system submitted to former minister for transport Martin Cullen, all provisional licence holders would be required to be accompanied by a driver who had held a full licence for at least three years.
In addition, they would be required to sit a driving test and would not be able to renew their licences if they failed to turn up.
Further restrictions would also apply to drivers in the run-up to the test and in the first two years of qualification. Measures proposed include lowering the alcohol limit to zero, compulsory training, and night-time curfews.
However, while the measures have the backing of the Road Safety Authority, aspects such as double penalty points for driving offences are likely to be seen as draconian.
Some Department of Transport advisors believe that measures to clamp down on learner drivers and introduce stricter penalties must be preceded by the eradication of the backlog of applications for a driving test.
The new Minister for Transport, Noel Dempsey, is said to be studying the proposals, many of which could be signed into law immediately.
However, Mr Dempsey has let it be known that he will not act hastily in deciding on the reforms, and his spokeswoman told The Irish Times the "final version may look very different".
A spokesman for the Road Safety Authority said the area of driving licence regulation was one which has needed reform for some time.
