Rivals try to stop Wilko

England's rugby rivals yesterday took the first steps towards shackling Jonny Wilkinson by trying to cut down the number of penalties.

The International Rugby Board's conference in New Zealand, which concluded yesterday, saw a recommended change in the rules that would see many penalties replaced by free-kicks, which do not permit a direct attempt at goal.

The conference, attended by leading officials, administrators and coaches from around the world, including England head coach Sir Clive Woodward, heard complaints that too many matches were settled by kicks at goal resulting from technical offences. It was agreed that many such infringements should be penalised by a free-kick. If the proposal were passed, only Law 10 (foul play) would result in a penalty, although that covers a wide range of offences, from punching and kicking to obstruction and time-wasting.

IRB chairman Syd Millar, the former Ireland and Lions prop, said: 'It's a bit unfair to lose a Test match because of a technical offence. So what we have agreed to do is look at whether some of what are now penalties may become free-kicks.'

The upshot for Wilkinson and England could be dramatic, given the frequent reliance on Newcastle's fly half to accumulate points with the boot. If the World Cup had featured such new guidelines, Woodward's side would have won the Final against Australia 8-5. But they would never have got that far as Wales scored three tries to England's one during their 28-17 quarter-final victory, with four of Wilkinson's six penalties coming from technical offences. Take away those 12 points and Steve Hansen's side would have prevailed 17-16.

Woodward is known to be opposed to any such change. Speaking before yesterday's developments, he said: 'I think the rules are all right, it's just how they are interpreted. My plea is not to tinker too much with the rules. But it's good for referees, coaches and players to get together from time to time to share ideas so we are all working off the same mindset.'