Expanding ID Card Access for LGBT Homeless Youth

8/20/2019 Expanding ID Card Access for LGBT Homeless Youth

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Expanding ID Card Access

for LGBT Homeless YouthBy Hannah Hussey October 2015

WWW.AMERICANPROGRESS.O


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Expanding ID Card Accessfor LGBT Homeless Youth

By Hannah Hussey October 2015


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1 Introduction and summary

3 Why ID cards matter

5 The REAL ID Act

7 State requirements

12 Communities with unique barriers

17 Recommendations

23 Conclusion

24 Appendix

27 Endnotes

Contents


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1 Center for American Progress | Expanding ID Card Access for LGBT Homeless Youth

Introduction and summary

Research suggess ha lesbian, gay, bisexual, and ransgender, or LGB, youh are

significanly overrepresened among young people experiencing homelessness.1

Like oher homeless individuals, LGB young people experience significan chal-

lenges while homelessincluding limied access o ood, sheler, healh care, edu-

caion, and employmen. Many o hese young people have run away rom home

or have been kicked ou by amilies who do no accep hem or who hey are.

Regardless o heir sexual orienaion or gender ideniy, homeless youhlike

oher adolescens and young adulsare growing and developing a sense o sel, while also navigaing homelessness. For LGB young people, his ofen includes

making difficul choices abou wheher and when o ideniy openly as LGB.

A he same ime ha hey are figuring ou how o express who hey are o hem-

selves and o ohers in person, many homeless LGB youh sruggle o prove heir

ideniies on paper. Sae-issued phoo idenificaion, or ID, cards are, or a variey o

reasons, difficul o obain or many LGB and homeless youh. Wihou an accu-

rae, up-o-dae ID card, even rouine asks can become bureaucraic nighmares.

Federal regulaions ha govern cerain sae processes or issuing ederally

acceped ID cards make obaining hese cards more difficul or homeless individ-

uals. In addiion o hese ederal barriers, individual sae policies creae unneces-

sary hurdles or homeless young people rying o acquire idenificaion:

• Only 22 percen o saesincluding he Disric o Columbiaoffer ree or

reduced-cos ID cards o young people who are homeless.2

• Nearly hal o all saes require some orm o consen rom a paren or legal

guardian o issue an ID card.3

• 12 saes have no apparen proocols or assising homeless ID card applicans,and many saes have proocols ha are unclear or impracical.4

• A leas 15 saes require proo o sex reassignmen surgery, a cour order, and/

or an amended birh cerificae or ransgender individuals o change he gender

marker on heir ID card, wih addiional saes using policies ha are unclear or

oherwise resricive.5


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Finding services, housing, and employmen requires navigaing a variey o di-

eren sysems ha can be challenging or many people and even more difficul

or homeless LGB youh. Using complicaed processes o obain required doc-

umenaion such as ID cards places an unair burden on hese young people. o

ensure ha homeless youh are no deerred rom reaching heir goals because

o bureaucraic red ape, i is criical o implemen measures ha aciliae heiraccess o ID cards, including:

• Revise state policies to facilitate access to ID cards for LGBT homeless youth.

Relaively simple changes o sae policy and pracicesuch as esablishing

clear procedures or homeless applicans, implemening ree or reduced-cos ID

cards, lowering or eliminaing parenal consen requiremens, acceping a broad

range o ideniy documens, and updaing policies on gender markerswould

creae a more user-riendly applicaion process or homeless youh, regardless o

heir sexual orienaion or gender ideniy.

• Improve ID card access for youth in foster care, the juvenile justice system,

and the criminal justice system. Helping young people a risk o homelessness

obain an ID card while hey are sill in sysems o sae care would remove some

o he obsacles hey encouner when leaving sae care and ensure ha ID card

access is no a barrier o housing sabiliy.

• Create or leverage partnerships with the nonprofit community. By improv-

ing coordinaion, building relaionships, and parnering on special evens or

iniiaives wih communiy-based organizaions, sae ID agencies can ap ino

pre-exising neworks o resources already serving homeless LGB youh.

• Establish municipal ID card programs. Municipaliies can ac independenly o

sae and ederal requiremens o esablish ID card programs ha benefi home-

less youh, LGB individuals, and a wide range o oher communiies ha have

low raes o ID card ownership.

Making changes a sae ID agencies may no solve he srucural barriers o sable

housing ha exis or LGB youh. Moving young people off he srees requires a

larger invesmen o resources ino housing and sheler programs and relaed services,as well as urher exploraion o homelessness prevenion iniiaives. Low-barrier ser-

vice modelswhich may involve no asking or ID cards a allalso meri addiional

atenion. In he meanime, however, reducing he barriers o obaining ID cards

is criical o helping homeless young people access he same opporuniies as heir

peers. I improving he lives o homeless and unsably housed youh is a communiy

responsibiliy, hen ID cards offer ID agencies he opporuniy o do heir par.


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Why ID cards matter

Wih he rise o modern echnology, concerns abou naional securiy and raud,

and ongoing debaes abou immigraion and ciizenship, demands o see an ID o

access services and conduc business in he course o everyday lie have become

increasingly common.6 For insance, presening an ID card has been expeced or

saring a new job since 1986, boarding an airplane since 1988, and opening finan-

cial accouns since he 1980s and 1990s.7

Daa on how many LGB homeless youh acually lack ID cards are scarce.Neverheless, a ew sudies offer a glimpse: A 2006 survey ound ha 11 percen

o voing-age U.S. ciizens lacked a curren governmen-issued phoo ID card, wih

significanly higher numbers among Arican Americans25 percenand indi-

viduals earning less han $35,000 per year15 percen.8 Addiionally, 18 percen

o survey respondens beween he ages o 18 and 24 did no have a phoo ID card

ha accuraely refleced heir curren legal name and address.9 For homeless youh

and LGB youh, he problem is likely more prevalen: A Seatle service provider

repored ha a leas hal o is homeless youh cliens had no ID card when hey

sared o receive case managemen services.10

A number o acors conribue o his lack o ID cards among homeless youh

jus as a variey o reasons are behind LGB young people’s deparure rom heir

homes. In some insances, LGB youh are fleeing violence or abuse. In oher

cases, hey are kicked ou afer a amily argumen or series o argumens over heir

sexual orienaion or gender ideniy. Ohers leave as a resul o subsance abuse

or amily povery. Regardless o how and why hey leave, however, many find

hemselves alone on he srees wih no ideniy documens. Some lack he ime o

grab documens beore hey leave home. Ohers are unable o access documens

ha are in he possession o heir parens or child welare proessionals. And some youh are unable o obain idenificaion documens because hey are no old

enough o apply or ID cards or immigraed o he Unied Saes wihou appro-

priae documenaion. Once a person is homeless, he barriers o obaining copies

o exising documenaion or geting new documenaion increase significanly.


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oday, presening an ID card is criical o obaining vial services. According o a

2004 survey conduced by he Naional Law Cener on Homelessness & Povery,

or NLCHP, denying services o individuals because hey lack ID cards is a wide-

spread praciceeven in insances where i may be unlawul o do so or where

he individual oherwise would be eligible or services. For example, he survey

ound ha when homeless individuals lacked phoo idenificaion, 54 percen“were denied access o shelers or housing services,” 53 percen “were denied ood

samps,” and 45 percen “were denied access o Medicaid or medical services.” 11 In

some circumsances, individuals mus produce a phoo ID card o fill a prescrip-

ion a a pharmacy, a key sep in mainaining good healh.12

Addiionally, an ID card is ofen a required componen o geting a job and open-

ing a bank accounboh imporan acors or homeless or unsably housed

individuals seeking a way o earn and save money. Wihou idenificaion, young

people may no be able o ake a GED exam or apply o college.13 Some public

buildings, including many courhouses, require individuals o show an ID card beore enering. Given ha LGB homeless young people have a disproporion-

ae level o ineracion wih he criminal jusice sysem, ID requiremens ha

migh preven or delay heir appearance in cour are problemaic.14 In addiion, a

number o saes reques some orm o phoo ID o voe.15 Even librarieswhich

oherwise can serve as low-barrier communiy resources or homeless individuals

seeking access o he Inerne, prin media, or a place o spend ime indoors

ofen require an ID card beore allowing visiors complee access o services.16

Many ciies and saes have policies ha criminalize homelessness and he srae-

gies used o survive i, such as prohibiions on siting, lying down, or panhandling

in public places, as well as policies ha aim o reduce aciviies such as sex work.17

When combined wih biases agains homeless individuals and LGB young

people, hese policies can resul in high levels o ineracion beween LGB home-

less youh and law enorcemen officers. Lack o idenificaion can exacerbae he

consequences o hese ineracions or homeless individuals. Providers surveyed

by he NLCHP repored ha in any given monh, police asked approximaely

one-hird o heir cliens o produce an ID card; more han hal o hose cliens

suffered harassmen or arres i hey could no produce an ID, wih officers some-

imes jusiying his reamen by suggesing ha he ailure o produce ID con-siued obsrucing he duies o a police officer.18 A 2005 Amnesy Inernaional

repor reached similar conclusions, finding ha LGB individuals o color,

homeless youh, and ransgender youh were paricularly vulnerable o requen

demands or idenificaion rom law enorcemen officersin some insances, on

a daily basis. Amnesy Inernaional also cied repors by youh in which police

requesed and hen confiscaed or hrew away heir ideniy documens.19


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The REAL ID Act

In he pos-9/11 climae dominaed by securiy concerns, Congress passed he REAL

ID Ac o 2005, which esablished, among oher hings, a series o heighened securiy

requiremens or any sae-issued ID card acceped by ederal agencies. Requiremens

se orh in he REAL ID regulaions mandae ha saes reques and veriy cerain

inormaion beore issuing ederally accepable orms o idenificaion, including:20

• Proo o ideniy

• Documenaion showing he applican’s dae o birh• Proo o he applican’s Social Securiy number or verificaion ha he applican

is no eligible or one

• Documenaion showing he applican’s address o principal residence

• Evidence ha he applican is lawully presen in he Unied Saes

Te REAL ID regulaions also provide a lis o which orms o documenaion are

accepable or some o he above caegories. For insance, he regulaions sae ha

o esablish ideniy, an applican mus presen a U.S. passpor, birh cerificae,

Consular Repor o Birh Abroad, permanen residen card, employmen auhoriza-

ion documen, oreign passpor wih U.S. visa and I-94 orm, cerificae o naural-

izaion, cerificae o ciizenship, or REAL ID-complian driver’s license or ID card.21

Sae compliance wih hese regulaions varies,22 wih our saes currenly ou o

compliance and several ohers operaing under an exension; conroversy rom sources

across he poliical specrum delayed compliance in many saes beyond he iniial ar-

ge year o 2008.23 Increasingly, however, more saes have revised heir ID card policies

and procedures o come ino ull or parial alignmen wih he REAL ID regulaions.

Tese regulaions pose a significan barrier o many demographics, including home-less youh seeking ID cards. Mos obviously, requiremens o show an address o

residency are, by definiion, nearly impossible or hose who are homeless and lack a

fixed address. Addiionally, requiremens o provide supporing documens, such as

proo o Social Securiy number, ull legal name, dae o birh, and/or a phoo iden-

iy documen are ofen burdensome o young people who lef home wihou any

legal ideniying documens; o young people whose documenaion has been solen


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rom hem while hey were living in shelers or on he srees; and o young people

who never had heir own copies o hese documens o begin wih. And unlike older

aduls, many young people have had less ime o esablish a paper rail ha can be

gahered as evidence o heir ideniy or residency.24

In addiion, obaining hese ypes o supporing documens wihou already havinga orm o phoo idenificaion is difficul. For insance, one provider in Maryland

who serves homeless cliens who wan new ID cards akes hem hrough a long

process: Cliens mus rack down copies o heir medical recordsofen rom

a local emergency room ha has served hemand use hose o obain a Social

Securiy card ha is mailed o he organizaion’s address under he clien’s name. I

he clien can receive a second piece o mail wih heir name and he organizaion’s

address on i, he clien ofen can use he wo pieces o mail wih he Social Securiy

card o obain a birh cerificae, which is also mailed o he organizaion. Only hen

can hey go o a sae office wih heir new Social Securiy card, birh cerificae,

pieces o mail, a saemen rom he organizaion, and any oher proo ha heymay be able o gaher and apply or an ID card.25

Even wih he assisance o a caseworker, however, he enire process is exremely

ime consuming and can be complicaed i any single sep goes wrong.26 A repor

rom he U.S. Deparmen o Housing and Urban Developmen indicaed ha

obaining an ID card could ake weeks or even monhs, ofen involving ravel

o muliple agencies or o a differen sae.27 For example, a Seatle provider ha

helps homeless youh obain idenificaion esimaed ha, or youh who have

never held a Washingon sae ID card beore, he enire process could ake a leas

six monhs and cos an average o $75.28 LGB young people who are homeless

may grow rusraed wih having o ake so many seps, ofen wihou he benefi

o consisen Inerne access or reliable ransporaion, or hey may be unable o

complee his process over a long period o imeparicularly given limis ha

resric how long hey can access some sheler programs.

Forunaely, however, he REAL ID regulaions provide saes wih he abiliy o

mee he needs o homeless ID card applicans. Under he law, sae agencies may

elec o esablish a writen excepions process or individuals who canno, or

reasons beyond heir conrol, provide he necessary documens, allowing hemo presen alernaive documens. However, here is no requiremen ha saes

creae processes o aciliae access o idenificaion or homeless individuals or

oher a-risk populaions. As a resul, he ease o obaining ID varies significanly

beween saes. In order o undersand ID access or LGB homeless youh

naionwide, he Cener or American Progress reviewed he policies in each sae,

as described in he ollowing secions.


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State requirements

Even in saes ha are ully complian wih REAL ID, here is wide variaion in

he processes, coss, and requiremens associaed wih obaining idenificaion.

Indeed, even he sae agencies responsible or issuing ID cards can vary: While

many saes issue ID cards hrough a Deparmen o Moor Vehicles, or DMV,

ohers uilize heir Deparmen o Public Saey or Secreary o Sae’s office.

Individual saes are also responsible or deermining he cos and age require-

mens or ID cards, as well as or inerpreing and implemening ederal require-

mens, such as residency.29

Cost

Te cos o a sae ID card varies significanly rom sae o sae and in some

saes depends on a variey o acors, including he applican’s age and wheher

he idenificaion will be used or voing purposes. According o a CAP review

o individual sae websies, he average cos o obaining a sae ID card or he

firs ime is $17. In some saes, i is significanly more: Hawaii charges $40,

Oregon charges $44.50, and Washingon charges $54. For individuals who also

mus obain oher documenaion, such as birh cerificaes, he acual cos is

ofen higher. Indeed, a Charles Hamilon Houson Insiue or Race and Jusice

2014 repor ound ha ree voer ID cardswhich someimes can serve as or

require similar documenaion as sae ID cards issued or oher purposes

acually carried secondary expenses ha generally ranged beween $75 and

$175 in he hree saes examined, considering he cos o acquiring supporing

documenaion, ravel, and los work ime.30


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Millennials coninue o experience high raes o povery and unemploymen,31

and homeless young people, in paricular, are ofen already sruggling o pay or

basic needs such as ood, sheler, and clohing. Addiional ees or an ID card

can pose a significan barrier o obaining idenificaion. Indeed, he surveyrom he Naional Law Cener on Homelessness & Povery indicaed ha 36

percen o cliens could no ge a phoo ID card because “hey could no afford

one.”32 However, relaively ew saes make accommodaions or individuals who

are low income or experiencing homelessness. Only 22 percen o saes and

Washingon, D.C., offer ree or reduced-cos ID cards o young people who are

homeless, hough here are addiional saes ha offer such discouns o individ-

uals who are already enrolled in public benefis programs, who have a disabiliy,

or who are required o have an ID card o voe.

Age restrictions

For homeless youh who are under age 18, heir saus as minors can urher

impede effors o obain an ID card. A handul o saes issue idenificaion only

o individuals who are a leas 14 or 15 years oldpoenially a barrier or unac-

companied LGB youh in paricular, who may become homeless a earlier ages.33

More commonly, saes require ha youh under a cerain agewhich can range

rom 14 o 18obain writen consen rom a paren or legal guardian on heir ID

card applicaion or bring heir paren or guardian o he ID card agency.

FIGURE 1

Free or reduced-cost ID

Percentage of states—including the District of Columbia—that make

free or reduced-cost ID available to homeless or low-income youth

Offer free or reduced-cost ID

Source: Author's calculations based on review of state ID agency websites, including the District of Columbia, between November 2014and May 2015. Calculations assume that the ID applicant is not eligible to vote and not currently receiving public assistance. Whereinformation was unclear or unavailable, attempts were made to verify by phone or with other state, nonprofit, or media sources.

22% 78%

Do not offer free or reduced-cost ID


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Like heir non-LGB peers, many homeless LGB youh are esranged rom heir

amilies o origin or oher caregivers, while ohers have amilies who are oherwiseunavailable because hey are dealing wih povery, incarceraion, muliple jobs,

caring or oher relaives, or amily subsance abuse.34 Requiring ha minors be

in conac wih heir parens or legal guardians o obain a signaure or arrange

a join visi o an ID agency is impracical and, in some insances, would mean

reinroducing he young person o a oxic or abusive siuaion. Currenly, 24 saes

require some orm o consen rom a paren or guardian, hough a small number

o hese will accep he signaure o a social worker, employer, or anoher adul

under cerain circumsances.

Residency requirements

Under REAL ID, nearly all saes now require documened proo o residency as

par o heir ID card applicaion process, hough a ew saes have ye o do so. For

homeless individuals who have no consisen place o residency, his requiremen

is paricularly difficul o mee. Alhough REAL ID permis saes o esablish pro-

cesses or individuals unable o prove heir residency in he sae, 12 saes have

no esablished a process or have nohing in place o make inormaion abou any

process available o he public.

FIGURE 2

Parental consent

Number of states that require minors to obtain consent

of parent or legal guardian for ID application

States that do not require consent

States that require consent

Source: Author's calculations based on review of state ID agency websites, including the District of Columbia, between November 2014and May 2015. "Parental consent" refers to states with requirements for some or all minors ages 13 or older. In a small number of states,exceptions to the requirements may apply in limited circumstances. Where information was unclear or unavailable, attempts were

made to verify by phone or with other state, nonprofit, or media sources.

24

27


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Among he saes ha do offer a homeless excepion o he residency requiremen,

here is wide variaion in how effecive and user riendly hese processes are. Bes

pracices ound in saes include: allowing applicans flexibiliy in describing anddocumening heir place o residencyor insance, allowing applicans o lis a

park, corner, or bridge in lieu o a sree address; acceping leters o documena-

ion rom a range o service providers; or permiting someone wih whom a young

person lives o complee an affidavi. Some saes also promoe clariy by pos-

ing requiremens and relevan orms in an easily accessible online locaion. For

example, homeless applicans in Oregon may use a descripive address and may

use a leter rom Oregon Sae Hospial, a homeless sheler, a halway house, or a

ransiional service provider as proo o residency.35

In oher saes, however, he homeless excepions process is unclear or inadequae.

For insance, Delaware regulaions permi he issuance o noncomplian idenifi-

caion o applicans wih no fixed address, provided ha hey can prove ha hey

are living in emporary quarers pending a move ino a more permanen residence

and ha he sheler hey are saying in cerifies ha hey are allowed residency

or a leas 30 days.36 Tis represens a hurdle or youh who may no know where

hey will be sleeping he ollowing day or week, le alone have plans or a per-

manen residence; addiionally, programs serving runaway and homeless youh

requenly limi he period o ime or which a youh can access sheler according

o ederal guidelinescurrenly 21 days or basic cener programs, or example.37

Sae requiremens ha accep verificaion only rom residenial programs also

pu ID cards urher ou o reach or youh who are unable or unwilling o sleep a

a shelera concern or LGB youh, no only as a resul o significan capaciy

shorages in many communiies bu also due o consideraions relaed o violence,

FIGURE 3

Homeless exceptions processes

Number of states with systems established to assist one or multiple

demographics of homeless individuals with residency requirements

States with a system

States without a system

Source: Author's calculations based on review of state ID agency websites, including the District of Columbia, between November 2014

and May 2015. Calculations exclude two states without residency requirements. Where information was unclear or unavailable,attempts were made to verify by phone or with other state, nonprofit, or media sources.

12

37


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harassmen, or discriminaion rom sheler saff or oher residens in connecion

wih heir sexual orienaion or gender ideniy. Such youh may, however, regu-

larly be ineracing wih providers a clinics, drop-in programs, or oher services

ha do no provide a bed bu ha could vouch or heir ideniy and residency in

he sae. Oher saes coun documenaion rom a provider as only one o wo

required orms o proo o residencya challenge when oher ypes o proo aredocumens such as leases, uiliy bills, or reners’ insurance, which homeless youh

are unlikely o have.

Proof of identity

Te requiremen ha young people prove heir ideniy is challenging or hose

who are homeless and wihou documens such as birh cerificaes, passpors, and

Social Securiy cards. Some saes, bu cerainly no all, offer a broader range o

opions or applicans, including a school ID card or ranscrips, employmen IDcards, juvenile or adul correcional aciliies’ idenificaion or records, sae agency

documenaion, or medical records, ofen requiring more han one or permi-

ing hem as supplemenary proo accompanying a “primary” documen, such as

a birh cerificae or passpor. Even hese requiremens, however, can be difficul

o mee: Many homeless young people do no atend school; do no have consis-

en employmen, someimes because hey lack idenificaion; sruggle o access

appropriae healh care; and canno enroll in sae benefis programs wihou being

able o prove heir ideniy. Homeless young people are unlikely o have documens

such as passpors, given esimaes suggesing ha more han hal o approximaely

wo-hirds o U.S. residens do no have a valid passpor.38 And while many home-

less LGB youh do inerac a some poin wih he criminal jusice sysem, young

people should no have o be locked up o obain a sae ID card.


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Communities with unique barriers

Alhough he barriers o obaining idenificaion are high or homeless youh

in general, cerain demographics o homeless youh ace addiional challenges.

In paricular, ransgender youh, undocumened immigran youh, and sysem-

involved youhhose who have been involved in he child welare or juvenile

jusice sysemsmay sruggle o navigae a sysem ha reuses o recognize hem

based on heir gender ideniy or expression, heir legal saus in he Unied Saes,

or heir hisory o involvemen in sae sysems o care.

Transgender youth

Even ransgender and gender-nonconorming individuals who have sable hous-

ing sruggle o secure an ID card ha accuraely reflecs heir names and genders

due o sysemic barriers ha complicae he process, as well as discriminaion and

harassmen rom governmen employees. For insance, when Chase Culpepper

wen o a Souh Carolina Deparmen o Moor Vehicles o ge a driver’s license,

DMV employees old he 16-year-old ha hey would no ake a phoo unless

Culpepper removed all makeup. Wih he assisance o legal advocaes, Culpepper

reached a setlemen wih he sae, resuling in a new policy: Individuals o any

gender can wear makeup, and DMV employees receive raining on serving rans-

gender and gender-nonconorming cliens.39

Culpepper’s is a sory o success, bu unorunaely, many encouners a ID agen-

cies end in disappoinmen and rusraion. Daa rom a naional survey o rans-

gender aduls sugges ha discriminaion is pervasive: One-hird o respondens

who had ransiioned had no updaed any o heir records or heir ID card wih

new gender markers, and only 59 percen had a driver’s license or sae ID card harefleced heir gender ideniy. Tese numbers were worse or respondens o color,

low-income respondens, and respondens wih lower levels o educaional atain-

men.40 O respondens who used gender-incongruen idenificaion, 40 percen

said ha hey had experienced harassmen, 15 percen said hey had been “asked o

leave an esablishmen,” and 3 percen said hey had been “assauled or atacked.”


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Requiremens on changing gender markers on ID cards vary rom sae o sae.

Fifeen saes require proo o sex reassignmen surgery, a cour order, and/or

an amended birh cerificae or ransgender individuals o change he gender

marker on heir idenificaion. Addiional saes have unclear policies, lack a

policy alogeher, or require proo o clinical reamen or documenaion rom

a narrow range o licensed proessionals.41 For homeless young people who

canno afford o or who choose no o medically ransiion, hese requiremens

make i difficul o obain an ID card wih he appropriae gender marker, and

hey leave young people vulnerable o he someimes arbirary decisions o judges, healh care personnel, and ohers charged wih deermining how heir

gender is recorded on paper.

FIGURE 4

Percentage of transgender adults with up-to-date ID gender markers

Of transgender adults who have transitioned

30

11

59

Source: Jaime M. Grant and others, "Injustice at Every Turn: A Report of the National Transgender Discrimination Survey" (Washington:National Center for Transgender Equality and National Gay and Lesbian Task Force, 2011), available at http://www.thetaskforce.org/stat-

ic_html/downloads/reports/reports/ntds_full.pdf.

“Did not try or indicated not applicable”

“Denied an updated license”

“Able to change the gendermarker on their driver's license”

FIGURE 5

Consequences of incongruous gender markers or names

Percentage of transgender adults who used incongruous

identity documents and experienced negative outcomes

“Harassed”

Source: Jaime M. Grant and others, "Injustice at Every Turn: A Report of the National Transgender Discrimination Survey" (Washington:National Center for Transgender Equality and National Gay and Lesbian Task Force, 2011), available at http://www.thetaskforce.org/stat-ic_html/downloads/reports/reports/ntds_full.pdf.

40

15

“Asked to leave an establishment”

“Attacked or assaulted”

3


17/33


Addiionally, young people who have legally changed heir names mus provide

proo o he name change o ensure ha heir curren name is prined on heir ID

card and o creae a link o pas ideniy or residency documenaion under heir

previous name. Even he ac o legally changing a name wihou any orm o iden-

ificaion documens is challenging, as applicans would need o obain an ideniy

documen in heir birh name beore going o cour o change heir legal name,and only hen could hey apply or a new ID card.

Even where modern and affirming policies are in place, hese policies may no

be readily apparen o youhor even o nonprofi employees or DMV saff

who are seeking o undersand and mee he requiremens. A 2014 analysis, or

insance, ound ha only 45 percen o saes lis he policy or a gender marker

change online; only 35 percen make he required orm available online; and only

one sae, Rhode Island, liss he policy on he orm isel.42 All o hese pose addi-

ional challenges or homeless youh wih litle documenaion, limied ime, and

ew resources o navigae ofen opaque governmen services.

Undocumented youth

Among he requiremens esablished by he REAL ID Ac, he one abou immi-

gran applicans showing proo o heir legal saus in he Unied Saes creaes a

subsanial barrier or undocumened individuals who wan a basic orm o ideni-

ficaion. Unable o obain orms o idenificaion recognized by mos U.S. auhori-

ies, immigrans mus rely on documens such as curren or expired U.S. visas or

hose issued by heir counries o origin, while some have no orm o idenificaion

a all.43 While some saes do make driver’s licenses or ID cards available o undocu-

mened immigrans, hese orms o idenificaion are sill no ederally complian.

As discussed previously, hese barriers are ofen more difficul o overcome when

combined wih he challenges o living as an unaccompanied homeless youh.

Indeed, here is some evidence ha even U.S. ciizens wih undocumened parens

may ace issues regarding documenaion: A lawsui suggess ha exas has reused

o issue birh cerificaes o children born in he Unied Saes o hundreds and pos-

sibly housands o undocumened parens, primarily since 2013.44

Research on he lack o idenificaion among undocumened immigrans highlighs

a number o issues ha, while perhaps no unique o his communiy, indicae a

clear need or acion. Like oher communiies wihou idenificaion, undocu-

mened immigrans are ofen unable o access basic services, such as appropriae

medical care. Lack o an ID card also pus hem a greaer risk or oher healh


18/33


and saey problems. For insance, some ciies have repored ha immigrans have

become easy arges or hef, wih perperaors assuming ha because individu-

als wihou idenificaion canno open a bank accoun, hey may be carrying large

amouns o cash.45 Addiionally, lack o an ID card can hinder relaionships wih

law enorcemen officers, as undocumened individuals may rerain rom repor-

ing workplace abuse or oher crimes o police or ear o being asked o show an IDcard, revealing heir immigraion saus.46 Finally, a lack o idenificaion docu-

menssuch as an ID card, birh cerificae, or passporcan make i more di-

ficul or undocumened young people o access programs such as Deerred Acion

or Childhood Arrivals, or DACA.

System-involved youth

Research indicaes ha LGB youh are overrepresened in boh he oser

care and juvenile jusice sysems.47 I is easy or hese young people o becomecaugh in a cruel cycle: Wihou sae and supporive homes, many are placed in

unsuiable oser care siuaions or land in juvenile jusice or adul aciliies afer

resoring o criminalized survival sraegies on he srees; once hey are in hese

sysems, LGB young people experience urher violence and harassmen, all

behind in educaional atainmen, and ace limied access o career opporuniies

and cerain orms o public benefis, placing hem a even greaer risk o coninued

housing insabiliy. Wihou an ID card, heir prospecs are worse.

New ederal legislaion requires ha saes provide a orm o sae ID and oher

imporan records o oser youh who are exiing he oser care sysem and are

18 years old or older.48 However, sae implemenaion may no ye be reaching

all young people, and he measure does no help youh who run away rom a

oser placemen beore age 18, ofen ino homelessness. Many oser or ormer

oser youh lack basic orms o idenificaion. For insance, oser youh in

Michigan noed ha many youh in he sae’s oser care sysem do no have

copies o heir own documenaion paperssuch as birh cerificaes, Social

Securiy cards, or a sae ID cardand ha i is imporan or young aduls o

have personal access o hese. I is no enough ha here may be copies sored

away in a caseworker’s file.49

For young people wihou idenificaion and lim-ied opions or obaining any, opporuniies o work or atend school are ofen

limiedwhich also can reduce housing sabiliy.50


19/33


Tere is litle research available o indicae he exen o which his problem is

presen in he juvenile jusice sysem. However, anecdoal repors reveal ha

boh youh and aduls coming ou o correcional aciliies ofen leave wih no

sae ID cardin some insances, because heir original ID card was confiscaed

or improperly soreddespie suggesions ha providing ID cards could help

smooh barriers o re-enry and reduce recidivism.51

New York is one state that provides a model for creating an infrastruc-

ture within its state ID card systems designed to assist unaccompanied

homeless youth. James Bolas, executive director of the New York

Coalition for Homeless Youth, has played an integral role in establishing

and coordinating this initiative, and today, he is able to see it make a

difference for youth and providers in their interactions with the DMV.

Because no one was advocating for unaccompanied homeless youth

and recognizing the Catch-22 of needing ID to get ID, a group of

advocates and providers reached out to the New York DMV beginning

n 2002 to highlight the needs of youth without identification and to

discuss possible solutions to the problem. Despite heightened secu-

rity concerns after the 9/11 terrorist attacks, the group built relation-

ships with state DMV officials and shared compelling stories about

the importance to unaccompanied youth of holding an ID card.

Over the course of eight years, the coalition instituted a public educa-

tion campaign that included data reports, case scenarios, and articles

within its biannual “State of Homeless Youth in NYC Report.” Through

a contact in the Office of Children and Family Services, or OCFS, their

concern was collectively introduced to the OCFS commissioner, who

started a dialogue with peers at the DMV. This opened the door

to a collaborative relationship with the DMV to establish a form52

specifically for homeless youth served by state-regulated provid-

ers, including transitional living programs, shelters, drop-in centers,

and host homes. New York collects proof of identity through a po

system: Individuals must present enough pieces of documentatio

each assigned a point value, to get an ID. Previously, these docu-

ments and their attached values had to total six points. Through i

work, however, the coalition reduced the number of documents t

homeless youth had to provide.

Key to the success of the program has been coordination and ong

ing relationships between providers, advocates, and DMV staff. Fo

instance, Bolas maintains an updated list of runaway and home-

less youth programs and staff contact information. These details

are shared with DMV employees on the agency’s internal system.

Additionally, a designated staff member at the DMV is equipped t

respond to any problems that youth or the provider who accomp

nies them might have when applying for an ID card at a branch offi

As a result, the process for obtaining an ID card has become sig-

nificantly easier for homeless young people and the providers w

work with them—allowing these youth to find employment, reg

custody of children, and enter courthouses or other federal buil

ings to resolve tickets and attend arraignments. In addition, Bol

noted that there are certain intangible benefits that come with

ing an ID card. “It’s validating to the young person,” he explained

“It allows young people to take responsibility for themselves, an

reinforces their sense of self.”

Improving ID card access for homeless youth in New York state


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Recommendations

While he ederal REAL ID Ac presens significan barriers o documenaion

or homeless or unsably housed LGB youh, and paricularly o undocumened

members o his communiy, here are a number o changes ha saes and munic-

ipaliies can make o aciliae ID card access or homeless young people while sill

remaining in compliance wih ederal regulaions. Saes could ake hese seps

independenly o ederal acion, helping young people access criical resources.

Revise state policies to facilitate access to ID cards

for youth who are LGBT and/or homeless

o ensure ha LGB homeless youh can obain a sae ID card, sae lawmak-

ers and agency officials mus creae clear policies and procedures o address heir

needs. Some saes have wo-iered ID card sysems, offering an enhanced or

ederally complian ID card as well as a “no or ederal use” ID card or individu-

als who can saisacorily prove heir ideniy o he sae bu who do no mee

ederal requiremens. However, saes can also ake acion ha is consisen wih

he requiremens under REAL ID. A policy ha mees ederal requiremens while

removing some o he barriers o obaining an ID card or LGB homeless youh

includes several componens:

• Establish a clear homelessness exceptions procedure. Under REAL ID, saes

can creae an excepions process or individuals who are unable o mee docu-

menaion requiremens. Saes should clearly communicae his process wih all

saff members and wih service providers who work wih LGB youh, as well

as pos i online. As par o an excepions procedure, saes should allow home-

less individuals o use he address o a sheler or nonresidenial service provider as heir own mailing address. Saes also should allow a descripive sree

addressor example, “under he 9h Sree bridge”wih alernaive opions

or mailing addresses or unshelered homeless individuals. Expanding he ypes

o accepable ideniy and residency documens o include hose ha youh

are more likely o have access osuden ID cards, school records, and sae


21/33


agency recordsalso would be helpul.53 When youh have no Social Securiy

card o heir own, saes should explore alernaive mehods o mee his ederal

requiremen. For insance, Wisconsin simply asks applicans o provide heir

Social Securiy number.54 Because he documenaion needs o each homeless

youh are differen, saes should offer as broad an array o orms o proo as

possible. Even wih more opions, hough, some youh will be simply unable omee sae documenaion requiremens, so saes should permi hem o pres-

en a leter rom a service provider or an affidavi o residency or ideniy.

• Reduce or waive fees to obtain a state ID card. Even a modes ee can make

i difficul or a homeless young person o obain idenificaionand in many

saes, he cos o obaining an ID card is ar rom modes. Free or reduced-cos

ID cards are available in many saes or he elderly, or individuals wih disabili-

ies, and or hose receiving cerain ederal or sae benefis. Saes should esab-

lish eligibiliy caegories so ha homeless individuals also qualiy or a ree ID

card. Models or his already exis: Connecicu waives he ee or applicans whocan prove residency in a homeless sheler. Nevada permis a one-ime ee exemp-

ion or individuals who declare hemselves o be homeless. Illinois, Kenucky,

and Washingon, D.C., have provisions governing he issuing o no- or low-ee

cards o individuals who mee a definiion o homelessness. o be youh riendly,

ree or low-cos ID cards should be provided o homeless individuals wihou

requiring exensive documenaion or paricipaion in public benefis programs.

• Reduce or eliminate age restrictions and parental consent requirements. For

youh who are minors and esranged rom parens or guardians, age-relaed resric-

ions presen an unnecessary obsacle o obaining an ID card. Saes should make

ID cards available o individuals o any age. Tey also should lower or eliminae

parenal consen requiremens so ha hose youh who become homeless a young

ages are able o prove heir ideniies in everyday siuaions. Addiionally, coordina-

ion across sysems would allow saes o ensure ha unaccompanied minors can

access and consen o he release o relevan supporing records where appropriae.

• Update policies on changing gender markers. A a minimum, saes should

modernize heir ID card policies by eliminaing requiremens o surgery or oher

specified reamen or changes o gender markers and permiting a broad rangeo providers o ates o he gender ideniy o he applican. User-riendly gender

designaion orms ha explain he sae policyavailable online, as well as in per-

sonwould complemen hese changes.55 Ideally, saes should consider adop-

ing he model currenly used or New York Ciy municipal cards, which permis

individuals o designae heir own gender using hree gender marker opions:


22/33


male, emale, or no designaed.56 I is also imporan ha all new and exising

saff members a ID agencies receive raining in LGB culural compeency and

respecully serving ransgender and gender-nonconorming applicans.

• Re-examine policies for other forms of identi fication documents and vital

records. Many o he issues ha make obaining an ID card difficul or unac-companied homeless youh also affec heir access o oher records, such as birh

cerificaes. Saes should examine and revise age resricions, proo-o-ideniy

requiremens, gender marker change policies, and oher poenial barriers,

bringing he process or obaining cerified copies o ideniy documens and

vial records in line wih recommended bes pracices.57

Improve ID card access for youth in foster care, the

juvenile justice system, and the cr iminal justice system

LGB youh who have been incarceraed or who have lef he oser care sysem

are a high risk or homelessness. Ensuring ha hese youh are provided wih an

ID card beore hey leave sysems o sae care and cusody could ac as a preven-

ive measure. Youh who can obain an ID card beore becoming homeless will

have ewer barriers o proving residency and ideniyand having an ID card

wih which o secure employmen and uilize services could make ataining sable

housing easier rom he sar.

• Implement U.S. law. oo ofen, LGB youh in he oser care and juvenile and

criminal jusice sysems all hrough he cracks. Sae DMVs can help pu hese

youh on equal ooing wih heir peers by ensuring ha young people in hese

sysems have access o he idenificaion documens ha hey will need o enroll

in school, obain employmen, and uilize social services. Saes should imple-

men he Prevening Sex rafficking and Srenghening Families Ac58 so ha all

young people who are ages 18 and older and aging ou o he oser care sysem

have appropriae idenificaion.

• Enact new policies to address other youth in state systems of care. Saes

should consider enacing new legislaion or policies o aciliae access oidenificaion or younger oser youh and or individuals exiing juvenile and

adul confinemen aciliies. A variey o models are available o mee he needs

o differen populaions: Saion ull- or par-ime DMV employees a jails and

probaion aciliies o assis individuals preparing or re-enry wih obaining


23/33


idenificaion;59 coordinae across agencies; and use mobile DMV offices. Te

American Bar Associaion has recommended ha sae agencies share docu-

menaion elecronically, where appropriae, and lif he requiremens ha youh

seeking sae assisance mus produce physical copies o documenaion. Tis

would urher reduce he barriers creaed by he ID card process.60

• Collect data to better identify the extent of the problem and target solutions.

While eedback rom youh and service providers suggess ha lack o ideni-

ficaion is a major problem, he exac numbers or youh populaions are no

available. Where possible, saes should ask quesions regarding ID card owner-

ship by oser youh and hose in he juvenile jusice sysem o ideniy poenial

areas o vulnerabiliy and opporuniies or inervenion. For insance, New

York Ciy’s Adminisraion or Children’s Services, or ACS, racks he number o

youh in oser care who requesed and received assisance wih obaining iden-

ificaion documenswhich ACS is able o obain ar more quickly han youh

could on heir ownhrough he agency’s Vial Records Uni.61 Addiionally,ederal, sae, and local policymakers and researchers should explore he easibil-

iy o adding quesions regarding sexual orienaion, gender ideniy, and pos-

session o an ID card and oher basic documenaion o surveys and sudies on

youh homelessness.

Create or leverage partnerships with the nonprofit community

Many providers ha serve homeless and LGB youh already have srong rela-

ionships wih hese young people, making hem well versed on he documena-

ion barriers ha he youh experience. Indeed, many providers currenly work

wih young people o help hem secure an ID card. By parnering wih he non-

profi communiy, sae ID card agencies can find innovaive ways o mee he

needs o young people. For insance, several communiies periodically hold an

even called Projec Homeless Connec o assis homeless individuals in obain-

ing an ID card, ofen making sae employees available on-sie, which removes

ransporaion barriers.62 Holding hese evens a sies ha are easily accessible

o youhsuch as schools, LGB ceners, youh-serving healh clinics, or

drop-in cenersmigh be able o urher enhance he efficacy o such evensor homeless or unsably housed youh communiies. Florida has enhanced such

parnerships by esablishing several mobile unis, offering idenificaion and

oher services rom a bus.63


24/33


Saes can also parner wih providers o creae a more user-riendly applicaion

process or homeless youh who are applying a branch offices o an ID agency.

For insance, saes can work wih communiy-based organizaions o clearly

communicae sandardized inormaion o homeless applicans. Many homeless

youh providers already receive sae unding or are governed by sae regulaions

or licensing requiremens; creaing more ormal parnerships may allow hem o vouch or he ideniy and residency o young people. Finally, saes also could

consider designaing one or more ID agency employees o assis homeless cliens

a each branch office or o coordinae and roubleshoo he provision o ID card

services o homeless youh.

Establish municipal ID card programs

Since 2007, a growing number o municipaliies are offering ciy ID cards o

residens.64 Because hese ID cards are no inended or ederal use, hey are norequired o conorm o he REAL ID regulaions. As a resul, hese municipaliies

have flexibiliy in creaing applicaion processes ha are user riendly or radiion-

ally disenranchised populaions. Municipaliies should consider creaing heir

own ID cards, which should include eligibiliy or undocumened immigrans, ol-

low bes pracices or designaing gender markers, and provide a significan range

o opions regarding proo o residency and ideniy.

Noably, many o he ciy ID card programs already in place incorporae some

o hese eaures. Te New York Ciy ID card permis hree opions or gen-

der markersmale, emale, or no designaedand requires as proo only

he applican’s saemen affirming heir gender ideniy.65 New York Ciy also

acceps a broad range o documens o prove residencyincluding a leter

rom a ciy agency, nonprofi organizaion, religious insiuion wih services

or homeless individuals, or hospial or healh clinic locaed in he ciy.66 And

several ciiesincluding bu no limied o New York Ciy; Los Angeles, San

Francisco, and Oakland, Caliornia; and New Haven, Connecicuoffer ID

cards o undocumened immigrans.67

Alhough municipal ID cards are no accepable or ederal purposes, hey cangive homeless individuals he opporuniy or easier ineracions wih local

auhoriies, improve heir access o financial or ciy services, clariy emergency

conac or medical inormaion, and reduce he impac o profiling by law


25/33


enorcemen.68 Many ciies have gone as ar as o design ID cards ha also serve

as a prepaid debi card, provide access o services such as public ranspora-

ion and public libraries, or include discouns o local businesses or ciy-owned

atracions.69 Tese innovaions help mee oher needs o marginalized popula-

ions. Imporanly, hey also make he ID card more atracive o he general

public, reducing he likelihood ha he cards wil l be used inappropriaely asinormaion abou an individual’s immigraion or housing saus.


26/33


Conclusion

Ending LGB youh homelessness is a complex ask ha requires much more

han changes o sae ID card lawsincluding unding or sheler programs;

invesmen in affordable housing; adequae physical and menal healh services;

and srucural changes o he oser care, juvenile jusice, and educaion sysems.70

However, or LGB youh who are living on he srees, on couches, or in shelers

while hey are rying o obain employmen, gain admitance o educaional insi-

uions, apply or jobs, or enroll in governmen benefis and services, he inabiliy

o ge an ID card acs as a rusraing and prevenable barrier o criical opporuni-ies. Removing unnecessary resricions is a simple way o open up a broad range

o opporuniies o LGB homeless youh; reduce complicaions or he providers

who work wih hem; and, ulimaely, provide hem wih a orm o sae recogni-

ion ha hey can hold in heir hands.


27/33


Appendix

TABLE A1

State-by-state review of ID policies for homeless young people

State Fee*

Free or

reduced-cost

ID available**

Parental

consent

required***

System to

address

residency

requirement

available****

Still requires proof of

transition-related surgery,

court order, or amended

birth certificate to change

gender markers, or policy

is unknown or unclear

Alabama $23.50 ●

Alaska $15.00

Arizona $12.00 ● ●

Arkansas $5.00 ● ●

California $28.00 ● ●

Colorado $10.50 ●

Connecticut $22.50 ● ●

Delaware $20.00 ● ●

District of Columbia $20.00 ● ●

Florida $25.00 ● ●

Georgia $20.00 ● ● ● ●

Hawaii $40.00 ● ●

Idaho $10.00 ●

Illinois $10.00 ● ●

Indiana $11.50 ●

Iowa $8.00 ● ●

Kansas $22.00 ● ●

Kentucky $12.00 ● ● ● ●

Lousiana $21.00 ● ● ●

Maine $5.00 ● ●

Maryland $15.00 ● ●

Massachusetts $25.00 ●

Michigan $10.00 ● ●


28/33


State Fee*

Free or

reduced-cost

ID available**

Parental

consent

required***

System to

address

residency

requirement

available****

Still requires proof of

transition-related surgery,

court order, or amended

birth certificate to change

gender markers, or policy

is unknown or unclear

Minnesota $21.25

Mississippi $17.00 ●

Missouri $11.00 ● ●

Montana $8.00 ● ●

Nebraska $26.50

Nevada $9.25 ● ●

New Hampshire $10.00 ●

New Jersey $24.00

New Mexico $10.00 ●

New York $10.00 ● ●

North Carolina $10.00 ● ● ●

North Dakota $0.00 ● ● ●

Ohio $8.50 ●

Oklahoma $20.00 ● ●

Oregon $44.50 ●

Pennsylvania $27.50 ● ●

Rhode Island $26.50 ● ●

South Carolina $5.00 ● ● ●

South Dakota $28.00 ● ● ●

Tennessee $5.00 ● ● ●

Texas $16.00 ● ●

Utah $18.00 ● ●

Vermont $20.00 ● ●

Virginia $10.00 ●

Washington $54.00 ● ●

West Virginia $10.00 ● ●

Wisconsin $28.00 ●

Wyoming $10.00 ●

*Based on 17-year-old not eligible or registered to vote

**For homeless or low-income young person not receiving public assistance and not eligible to vote

*** For some or all minors ages 13 or older; exceptions may apply in limited circumstances

**** States with systems available include wide variations in quality, ranging from states with specific forms for unaccompanied homeless youth to states that have fewor no designated resources for homeless individuals but do permit some unstably housed individuals to access ID through certain processes, such as applying at the IDagency accompanied by a person with whom they are residing

Source: Research was conducted on state ID agency websites, including the District of Columbia, between November 2014 and May 2015. Calculations assume that the IDapplicant is not eligible to vote. Where information was unclear or unavailable, attempts were made to verify by phone or with other state, nonprofit, or media sources.


29/33


About the author

Hannah Hussey is a ormer Research Associae or LGB Progress a he Cener

or American Progress. Prior o joining he Cener, Hussey served as coordina-

or or he Massachusets Commission on Lesbian, Gay, Bisexual, ransgender,

Queer, and Quesioning Youh, an independen sae agency dedicaed o recom-mending policies, programs, and resources or LGB youh o hrive. In ha role,

Hussey helped wrie and implemen policy recommendaions o 15 sae agencies

on opics including educaion, healh, oser care, juvenile jusice, housing, immi-

graion, ransporaion, and workorce developmen. She also led an iniiaive o

creae a comprehensive map and daabase o culurally compeen services avail-

able o LGB youh hroughou he sae o improve accessibiliy and ideniy

resource gaps. Previously, Hussey held inernships wih MassEqualiy and he

Boson Consorium on Gender, Securiy and Human Righs and received a B.A.

in sociology and women’s, gender, and sexualiy sudies rom ufs Universiy.

Acknowledgments

Te auhor would like o hank YouhCare, he Naional Nework or Youh,

he Naional Cener or ransgender Equaliy, and he New York Coaliion or

Homeless Youh or heir conribuions o his repor. Graiude also goes o

Rosie Nevins or her parnership in developing he ideas in his repor and or

puting hem ino acion; o Laura Durso, Silva Mahema, Philip Wolgin, and

Sunny Frohingham or eedback; and o Ana Flores, Spencer Perry, and Margare

Hughes or research assisance.

Te Cener or American Progress hanks Te Palete Fund or is suppor o

our LGB programs and o his repor. Te views and opinions expressed in his

repor are hose o he Cener or American Progress and he auhor and do no

necessarily reflec he posiion o Te Palete Fund. Te Cener or American

Progress produces independen research and policy ideas driven by soluions ha

we believe will creae a more equiable and jus world.


30/33


Endnotes

1 Andrew Cray, Katie Miller, and Laura E. Durso, “SeekingShelter: The Experiences and Unmet Needs of LGBTHomeless Youth” (Washington: Center for AmericanProgress, 2013), available at https://www.american-progress.org/issues/lgbt/report/2013/09/26/75746/seeking-shelter-the-experiences-and-unmet-needs-

of-lgbt-homeless-youth/; Soon Kyu Choi and others,“Serving Our Youth 2015: The Needs and Experiencesof Lesbian, Gay, Bisexual, Transgender, and QuestioningYouth Experiencing Homelessness” (New York andLos Angeles: The Palette Fund, True Colors Fund, and

The Williams Institute, 2015), available at https://new.truecolorsfund.org/wp-content/uploads/2015/05/Serving-Our-Youth-June-2015.pdf.

2 Based on CAP review of individual state policies fromNovember 2014 to May 2015.

3 Ibid.

4 Ibid.

5 National Center for Transgender Equality, “ID Docu-ments Center,” available at http://transequality.org/documents (last accessed August 2015).

6 Peter P. Swire and Cassandra Q. Butts, “The ID Divide:Addressing the Challenges of Identification and Au-thentication in American Society” (Washington: Centerfor American Progress, 2008), available at https://cdn.americanprogress.org/wp-content/uploads/is-sues/2008/06/pdf/id_divide.pdf; Craig Robertson, “YouLie! Identity, Paper, and the Materiality of I nformation,”The Communication Review 17 (2) (2014): 69–90.

7 Swire and Butts, “The ID Divide.”

8 Brennan Center for Justice, “Citizens without Proof: ASurvey of Americans’ Possession of Documentary Proofof Citizenship and Photo Identification” (2006), avail-able at http://www.brennancenter.org/sites/default/files/legacy/d/download_file_39242.pdf.

9 Ibid.

10 YouthCare, “Homele ss Youth Face ID Crisis,” December4, 2012, available at http://www.youthcare.org/about-youthcare/news/homeless-youth-face-id-crisis#.VaUd7Pk1Nsl.

11 Sara Simon Tompkins, “Photo Identification BarriersFaced by Homeless Persons: The Impact of September11” (Washington: National Law Center on Homeless-ness & Poverty, 2004), available at https://olis.leg.state.or.us/liz/2013R1/Downloads/CommitteeMeetingDocu-ment/17003.

12 Centers for Disease Control and Prevention, Menu ofState Prescription Drug Identification Laws (U.S. Depart-ment of Health and Human S ervices, 2013), available athttp://www.cdc.gov/phlp/docs/menu-pdil.pdf .

13 YouthCare, “Homele ss Youth Face ID Crisis.”

14 Tompkins, “Photo Identification Barriers Faced byHomeless Persons”; Angela Irvine, “’We’ve Had Threeof Them’: Addressing the Invisibility of Lesbian, Gay,Bisexual and Gender Nonconforming Youths in theJuvenile Justice System,” Columbia Journal of Genderand Law 19 (3) (2010): 675-701, available at http://www.nccdglobal.org/sites/default/files/content/weve-had-three-of-them.pdf.

15 Aaron Blake, “Do I Need an ID to Vote? A Look at theLaws in All 50 States,” The Fix, October 27, 2014, avail-able at http://www.washingtonpost.com/blogs/the-fix/wp/2014/10/27/does-my-state-require-identification-to-vote/; Wendy Underhill, “Voter IdentificationRequirements – Voter ID Laws,” National Conference of

State Legislatures, August 10, 2015, available at http://www.ncsl.org/research/elections-and-campaigns/voter-id.aspx.

16 Kenia Torres, “Families at Odds with Homelessness OverAccess to Library,” Voice of OC, June 23, 2014, availableat http://voiceofoc.org/2014/06/families-at-odds-with-homeless-over-access-to-library/.

17 Tristia Bauman, “No Safe Place: The Criminalization ofHomelessness in U.S. Cities” (Washington: National LawCenter on Homelessness & Poverty, 2014), available athttp://www.nlchp.org/documents/No_Safe_Place.

18 Tompkins, “Photo Identification Barriers Faced byHomeless Persons.”

19 Amnesty International, “Stonewalled: Police Abuseand Misconduct against Lesbian, Gay, Bisexual, and

Transgender People in the U.S.” (2005), available athttp://www.streetwiseandsafe.org/wp-content/up-loads/2011/01/StonewalledAI.pdf .

20 U.S. Department of Homeland Security, “MinimumStandards for Driver’s Licenses and Identification CardsAcceptable by Federal Agencies for Official Purposes,”,Federal Register 73 (19) (2008): 5272–5340, available athttp://www.gpo.gov/fdsys/pkg/FR-2008-01-29/pdf/08-140.pdf .

21 Ibid.

22 U.S. Department of Homeland Security, “REAL IDEnforcement in Brief,” available at http://www.dhs.gov/real-id-enforcement-brief (last accessed August 2015).

23 Jim Harper, “REAL ID: A State-by-State Update” (Wash-ington: Cato Institute, 2014), available at http://object.

cato.org/sites/cato.org/files/pubs/pdf/pa749_web_3.pdf.

24 Martha R. Burt and others, Strategies for ImprovingHomeless People’s Access to Mainstream Benefits andServices (Washington: U.S. Department of Housing andUrban Development, 2010), available at https://books.google.com/books?id=h0zEMnJVt24C&pg=PA98&lpg=PA98&dq=barriers+to+id+homeless&source=bl&ots=8Dm9ahLrFZ&sig=HoMOT58dQzJ02BzX-g71xA3mCyA&hl=en&sa=X&ved=0CEsQ6AEwBzhQahUKEwim2bOS8orGAhWJEZIKHVlQDwk#v=onepage&q=barriers%20to%20id%20homeless&f=false.

25 Catherine Wiehl, “Reliance on Identification to Securethe Blessings of Liberty and Property,” UMKC Law Review 81 (2012): 509.

26 Ibid.

27 Burt and others, Strategies for Improving HomelessPeople’s Access to Mainstream Benefi ts and Services .

28 YouthCare, “Homeless Youth Face ID Crisis.”

29 U.S. Department of Homeland Security, “MinimumStandards for Driver’s Licenses and Identification CardsAcceptable by Federal Agencies for Official Purposes.”

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30 Richard Sobel, “The High Cost of ‘Free’ Voter Identifica-tion Cards” (Cambridge, MA: Harvard Law SchoolCharles Hamilton Houston Institute for Race andJustice, 2014).

31 Bureau of the Census, “New Census Bureau StatisticsShow How Young Adults Today Compare With PreviousGenerations in Neighborhoods Nationwide,” Pressrelease, December 4, 2014, available at http://www.census.gov/newsroom/press-releases/2014/cb14-219.html.

32 Tompkins, “Photo Identification Barriers Faced byHomeless Persons.”

33 Cray, Miller, and Durso, “Seeking Shelter.”

34 Ibid.; Choi and others, “Serving Our Youth 2015.”

35 Oregon DMV, “Required Identity Documentation,” avail-able at http://www.oregon.gov/ODOT/DMV/pages/driverid/idproof.aspx#residence (last accessed August2015).

36 State of Delaware, “2217 Driver License and Identi-fication Card Application Procedures for DelawareCompliant and Delaware Non-Compliant IdentificationDocuments,” available at http://regulations.delaware.gov/AdminCode/title2/2000/2200/Driver/2217.shtml#TopOfPage (last accessed August 2015).

37 Family & Youth Services Bureau, “Basic Center ProgramFact Sheet,” http://www.acf.hhs.gov/programs/fysb/resource/bcp-fact-sheet (last accessed August 2015).

38 William D. Chalmers, “The Great American PassportMyth: Why Just 3.5% of Us Travel Overseas!”, HuffPost

Travel, September 29, 2012, available at http://www.huffingtonpost.com/william-d-chalmers/the-great-american-passpo_b_1920287.html; Matt Stabile, “HowMany Americans Have a Passport?”, The Expeditioner,February 9, 2014, available at http://www.theexpedi-tioner.com/2010/02/17/how-many-americans-have-a-passport-2/.

39 Elahe Izadi, “How a Transgender Teen Got South Caro-lina to Change Its License Photo Policy,” GovBeat, April22, 2014, available at http://www.washingtonpost.com/blogs/govbeat/wp/2015/04/22/how-a-transgender-teen-got-south-carolina-to-change-its-license-photo-

policy/.

40 Jaime M. Grant and others, “Injustice at Every Turn: AReport of the National Transgender DiscriminationSurvey” (Washington: National Center for TransgenderEquality and National Gay and Lesbian Task Force,2011), available at http://www.thetaskforce.org/static_html/downloads/reports/reports/ntds_full.pdf .

41 Personal communication from Arli Christian, policycounsel, National Center for Transgender Equality, July2015.

42 Ev Evnen, “Changing Lives Through the DMV: WhyDriver’s Licenses Are Essential for Transgender Rights”(2014, unpublished).

43 The Center for Popular Democracy, “Who We Are:Municipal ID Cards as a Local Strategy to Promote

Belonging and Shared Community Identity” (2013),available at http://populardemocracy.org/sites/default/files/municipal%20id%20report.pdf.

44 Molly Hennessy-Fiske, “Immigrants sue Texas overstate’s denial of birth certificates for U.S.-born children,”Los Angeles Times, July 18, 2015, available at http://www.latimes.com/nation/immigration/la-na-texas-immigrant-birth-20150718-story.html.

45 The Center for Popular Democracy, “Who We Are.”

46 Ibid.

47 Bianca D.M. Wilson and others, “Sexual and GenderMinority Youth in Los Angeles Foster Care: AssessingDisproportionality and Disparities in Los Angeles”(Los Angeles: The Williams Institute and others, 2014),available at http://williamsinstitute.law.ucla.edu/wp-content/uploads/LAFYS_report_final-aug-2014.pdf ;Irvine, “We’ve had three of them.”

48 Children’s Defense Fund and others, “Implementing thePreventing Sex Trafficking and Strengthening FamiliesAct (P.L. 113-183) to Benefit Children and Youth” (2015),available at http://www.childrensdefense.org/library/data/implementing-the-preventing.pdf.

49 Michigan.gov, “Voice: Discussing Issues and Concernsof Michigan Foster Youth,” available at https://www.michigan.gov/documents/fyit/DHS-Voice1-Foster-Youth_218979_7.pdf (last accessed August 2015).

50 Garrett Therolf, “No papers – and little hope of advance-ment,” Los Angeles Times, August 23, 2009, availableat http://articles.latimes.com/2009/aug/23/local/me-nopapers23.

51 Abby Sewell, “L.A. County Supervisors Consider HelpingEx-offenders Get ID Cards,” Los Angeles Times, January31, 2014, available at http://jjie.org/l-a-county-supervi-

sors-consider-helping-ex-offenders-get-id-cards/; PaulaM. Davis, “A Clean Start: Legislation Proposed by StateRep Margaret O’Brien Could Help Released PrisonersSecure Proper Identification,” Kalamazoo Gazette,February 6, 2011, available at http://www.mlive.com/news/kalamazoo/index.ssf/2011/02/a_clean_start_leg-islation_prop.html.

52 New York State Department of Motor Vehicles, “FormMV-45-B,” available at http://dmv.ny.gov/forms/mv45b.pdf (last accessed August 2015).

53 Amy Horton-Newell, Katie Meyer, and Casey Trupin,eds., “Runaway and Homeless Youth and the Law:Model State Statutes” (Chicago and Washington:American Bar Association and The National Network forYouth, 2009), available at https://www.nn4youth.org/wp-content/uploads/ABA_Runaway_eBook.authcheck-dam.pdf .

54 Wisconsin Department of Transportation, “WisconsinIdentification Card (ID) Application,” available at http://wisconsindot.gov/Documents/formdocs/mv3004.pdf (last accessed August 2015).

55 Personal communication from Christian.

56 NYC.gov, “IDNYC Application,” available at http://www1.nyc.gov/assets/idnyc/downloads/pdf/application-materials/application_english.pdf (last accessedSeptember 2015).

57 Newell, Meyer, and Trupin, eds., “Runaway and Home-less Youth and the Law.”

58 Preventing Sex Trafficking and Strengthening Families Act ,H.R. 4980, 113 Cong. 2 sess. (Library of Congress, 2014),available at https://www.congress.gov/bill/113th-

congress/house-bill/4980/text.

59 Sewell, “L.A. County Supervisors Consider Helping Ex-offenders Get ID Cards.”

60 Newell, Meyer, and Trupin, eds., “Runaway and Home-less Youth and the Law.”

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