The Automobile Association is backing a police call for the Government to tackle breaches of driver's licences.
There were 120,000 breaches of learner or restricted driver's licence conditions in 2009.
The association says those breaches and the fact nearly 200,000 people have been on learner or restricted licences for more than five years show the system is not working.
Its motoring affairs general manager, Mike Noon, says this is a long-standing matter the Government must deal with.
He says a way must be found to move those 200,000 people on to a full licence.
Mr Noon says there also needs to be more effective incentives and penalties to make people comply with the conditions of their licence.