More than 10,000 people have been driving with only a learner permit for at least 15 years.
According to freedom of information figures, almost 5,000 people have one for over 20 years.
Under current rules, you can't apply for a third learner permit unless you’ve done a driving test or have an upcoming test.
Conor Faughnan, director of consumer affairs with the AA, says it's a disgrace so many motorists still don't have a driving licence.
"It's embarrassing, it shouldn't be the case", he said.
"It's actually a legacy from earlier times. If you go back twelve years or a little more ago, the Irish state wasn't competent to conduct driving tests."
The waiting list was routinely well over a year - what we have left here is a legacy of rump, but it really is inexcusable."
