Ah yes, the risk of small fines that is why people won't do dangerous things. Have we tried a £50 fine for murder?
Economist brain.
The problem is very simple: driving tests aren't hard enough, too many people have driving licences, and we don't retest people. In addition, enforcement of people driving without a licence is completely pathetic (as anyone who has driven in the UK can attest to, the stuff I have seen over the past few years is insane...obviously there is an underlying cause but if you see a clapped out hatchback, Just Eats bag in the front seat, P plates on the car, you know to steer well clear...as if the multiple dents on the car already didn't give it away).