Over 120 thousand permit holders - who got their first provisional licence between 1984 and 2016 - have never taken the test.
The head of the Road Safety Authority has described the number as 'shocking'.
In Kildare, 25,992 held a learner permit by the end of 2016, the most recent figures available.
The Naas driving test centre is the only one in the county and has an average wait time of 6 weeks.
The current longest wait time at the centre for a driving test is 11 weeks.