Nearly 11,000 drivers still only have a learner permit over 21 years after first getting one.
They're among almost 218,000 learner drivers on the roads at the moment.
A person can't apply for a third or subsequent learner permit unless they've recently done a test, or have one booked.
Transport commentator Conor Faughnan says some people are abusing the system.
"It does seem like a crazy practice, and it seems obvious that we should tighten that rule or at least investigate why people are still doing this.
"There may be some anomalies there, there may be people who have left the country and come back, or perhaps there are other anomalies there.
"But on the face of it, to be an individual technically with learner status on Irish road continuously for 25 years, that does seem absurd and difficult to justify."
