Transport Minister Shane Ross has said there is "an increasing consensus" that the aviation sector might not recover until 2023.
The prediction comes as the Government announced a taskforce is to be set up to look at recovery conditions for the sector.
The group will examine the experience of other countries in opening borders and monitor the effectiveness of measures to control any resumption of COVID-19 growth.
The Departments of Transport and Health will agree new protocols that should be applied to promote health and virus control.
A code of practice is expected to be finalised and published in the coming weeks.
While close engagement will continue with both State-owned and non-State owned parts of the industry.
And support measures are also to be considered in consultation with the Department of Public Expenditure.
This will consider what supports may be needed to facilitate the return of a strong aviation industry.
State airports are continuing to run airline services for cargo and a limited number of passengers.
Regional airports such as Donegal and Kerry are also open to facilitate public service obligation services between those airports and Dublin.
While Knock Airport has closed down entirely on a temporary basis.
Speaking in the Dáil, Transport Minister Shane Ross said: "There is a broad consensus that the recovery of the industry will take time.
"While there were hopes at earlier stages in the crisis that next year might see a return to business as usual there is an increasing consensus that a recovery will be slow with some predicting that 2019 levels of traffic will not be achieved again until 2023."
"The recovery of aviation depends on a number of factors including the lifting of constraints on border movements and the establishment of new arrangements to protect the health of passengers in the course of the aviation journey."
The European Commission issued guidelines last month, setting out recommendations relating to the travel and tourism sectors.
On this, Minister Ross said: "We are beginning the process of considering how these criteria might be best applied in an Irish context.
"Of course public health considerations must predominate and we cannot take actions that potentially undermine the good work that we have done in bringing COVID-19 under control."
Aer Lingus, Ryanair and the daa have all announced plans to cut jobs as a result of the pandemic.
