When he was stopped for DWI on Sunday night in Brentwood, 52-year-old Lugene Shepard was driving without a license. Again. We say again because the Bay Shore man has had his license suspended or revoked 40 times dating back to the 1980s, because he has previous arrests and convictions for DWI -- and driving while under the influence of drugs. Which is an outrage. Because it just goes to prove that the penal system doesn't work when it comes to license suspensions and revocations. Because the case of Lugene Shepard -- and of other drivers like him -- proves that stricter penalties need to be put into place when it comes to those who drive without a license. He has, after all, had his license revoked eight times for drunken driving, refusal to submit to a chemical test, driving without insurance and multiple speeding tickets. He hasn't killed anyone. Yet. As far as we know. Based on his track record, however, that might just be a matter of time. Drivers such as Lugene Shepard prove, simply, that the system fails all of us who obey the law. Who obey the rules of the road. Because as long as drivers like this are on the road, the rest of us are in mortal danger. Since it is obvious that simply revoking or suspending the license of such drivers does nothing to deter them, then it's time we face the harsh reality that the only penalty that will keep these repeat offenders off our roads -- and protect us and ours -- is to throw them in jail. Because, obviously, someone willing to shun the law more than 40 times has no conscience. And no sense or moral or civic responsibility. And the only deterent -- and prevention -- to keeping them from getting behind the wheel of a car is incarceration. Until our politicians and lawmakers have the guts to make that the absolute bottom line then none of us is safe from drivers like Lugene Shepard. And no one should be surprised when, the next time, the results are tragic. Instead of being merely offensive.