Learner and restricted licence drivers who have not upgraded to the full licence system will have to resit their theory test under proposed changes to the system.

Public consultation is underway on the New Zealand Transport Agency's proposed changes, aimed at improving the safety of novice drivers and motorcyclists.

Drivers, or riders, who don't move on to the next stage within five years will need to pass another theory test to renew their learner or restricted licence after it expires.

NZTA road safety director Ernst Zollner says the proposed five-year time limit for each of the learner and restricted licence stages aims to encourage novice drivers and motorcyclists to progress to a full licence, within a reasonable timeframe.

'The purpose of the Graduated Driver Licensing System is for novice drivers and riders to progress from a learner to a full licence by gradually gaining the skills and experience needed to drive safely – and to demonstrate that they have gained those skills by passing practical driving on the way to gaining a full licence.

'The restrictions that apply to learner and restricted licences are there to ensure that novice drivers gain experience and skills under low-risk conditions.”

Ernst says drivers who stay at one licence stage indefinitely aren't demonstrating that they've gained the skills and competence to drive safely.

'Many offences for breaching licence conditions are committed by drivers who have held a learner or restricted licence for an extended time.”

The proposed changes are designed to work together with other measures introduced in recent years to improve the safety of novice drivers, including raising the minimum licensing age from 15 to 16, the introduction of a zero alcohol limit for teen drivers and the rollout of more challenging practical driver tests to gain restricted and full licences.

Other proposed changes under consideration in the amended Driver Licensing Rule include strengthening the ‘evidence of identity' requirements for licence applications, and allowing driver licensing and driver testing transactions to be completed via a wider range of channels such as online or at kiosks.

Submissions on the proposed changes close at 5pm on Wednesday 28 May 2014.