"Drivers who stay at one licence stage indefinitely aren't demonstrating that they've gained the skills and competence to drive safely, and many offences for breaching licence conditions are committed by drivers who have held a learner or restricted licence for an extended time."
Other changes proposed include strengthening evidence of identity requirements, and allowing some licence transactions to be done online or at kiosks. All first applications would still need to be made in person.
Recent changes include raising the minimum licensing age from 15 to 16, a zero alcohol limit for under-20s, and harder practical tests for restricted and full licences.
Champion motorsport driver Greg Murphy has spoken out about the need for changes to licensing, and called for compulsory professional training for all drivers.
He told the Herald drivers' level of skill was "just terrible".