Sorry if I'm not expressing myself well -- I was trying to draw a comparison between seatbelt laws (which, when introduced, were broadly griped about by drivers) and stronger licensing requirements (which, if introduced, will no doubt similarly be griped about).
I don't think there's a good (fair) way to devise a test for whether people will be risk seeking, in the same way that seatbelt laws can't stop scofflaws from not wearing their seatbelts. Instead, the purpose of these kinds of laws/regulations is to change the cultural "baseline" around safe behavior: wearing a seatbelt is the law, and most people do it by default now. Similarly, instituting a more intensive licensing regime (where people have to demonstrate not just driving ability but proficiency in safe driving) can change the cultural baseline around how drivers behave on our streets, our highways, etc.
In other words: let's keep licensing people, but make getting a drivers' license "intense" the way it is in much of Europe, rather than taking it for granted as a part of being an American adolescent. I think that can go a long way in terms of encouraging a more serious treatment of the responsibility that comes with driving, and which is currently lacking on American roads.
(And of course we should induce behavior away from driving to begin with, reconfigure our cities to favor pedestrians and cyclists, fund mass transit, etc.)