Expanding ID Card Access for LGBT Homeless Youth
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Transcript of 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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2 Center for American Progress | Expanding ID Card Access for LGBT Homeless Youth
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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3 Center for American Progress | Expanding ID Card Access for LGBT Homeless Youth
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
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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
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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
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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 pro- vider 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
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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:
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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
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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
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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
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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.
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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.
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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 ● ●
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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.
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26 Center for American Progress | Expanding ID Card Access for LGBT Homeless Youth
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.
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27 Center for American Progress | Expanding ID Card Access for LGBT Homeless Youth
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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9ahLrFZ&sig=HoMOT58dQzJ02BzX-g71xA3mCyA&hl=en&sa=X&ved=0CEsQ6AEwBzhQahUKEwim2bOS8orGAhWJEZIKHVlQDwk#v=onepage&q=barriers%20to%20id%20homeless&f=falsehttps://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=falsehttps://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=falsehttps://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=falsehttps://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=falsehttps://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=falsehttps://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=falsehttp://object.cato.org/sites/cato.org/files/pubs/pdf/pa749_web_3.pdfhttp://object.cato.org/sites/cato.org/files/pubs/pdf/pa749_web_3.pdfhttp://object.cato.org/sites/cato.org/files/pubs/pdf/pa749_web_3.pdfhttp://www.dhs.gov/real-id-enforcement-briefhttp://www.dhs.gov/real-id-enforcement-briefhttp://www.gpo.gov/fdsys/pkg/FR-2008-01-29/pdf/08-140.pdfhttp://www.gpo.gov/fdsys/pkg/FR-2008-01-29/pdf/08-140.pdfhttp://www.streetwiseandsafe.org/wp-content/uploads/2011/01/StonewalledAI.pdfhttp://www.streetwiseandsafe.org/wp-content/uploads/2011/01/StonewalledAI.pdfhttp://www.nlchp.org/documents/No_Safe_Placehttp://voiceofoc.org/2014/06/families-at-odds-with-homeless-over-access-to-library/http://voiceofoc.org/2014/06/families-at-odds-with-homeless-over-access-to-library/http://www.ncsl.org/research/elections-and-campaigns/voter-id.aspxhttp://www.ncsl.org/research/elections-and-campaigns/voter-id.aspxhttp://www.ncsl.org/research/elections-and-campaigns/voter-id.aspxhttp://www.washingtonpost.com/blogs/the-fix/wp/2014/10/27/does-my-state-require-identification-to-vote/http://www.washingtonpost.com/blogs/the-fix/wp/2014/10/27/does-my-state-require-identification-to-vote/http://www.washingtonpost.com/blogs/the-fix/wp/2014/10/27/does-my-state-require-identification-to-vote/http://www.cdc.gov/phlp/docs/menu-pdil.pdfhttps://olis.leg.state.or.us/liz/2013R1/Downloads/CommitteeMeetingDocument/17003https://olis.leg.state.or.us/liz/2013R1/Downloads/CommitteeMeetingDocument/17003https://olis.leg.state.or.us/liz/2013R1/Downloads/CommitteeMeetingDocument/17003http://www.youthcare.org/about-youthcare/news/homeless-youth-face-id-crisishttp://www.youthcare.org/about-youthcare/news/homeless-youth-face-id-crisishttp://www.youthcare.org/about-youthcare/news/homeless-youth-face-id-crisishttp://www.brennancenter.org/sites/default/files/legacy/d/download_file_39242.pdfhttp://www.brennancenter.org/sites/default/files/legacy/d/download_file_39242.pdfhttps://cdn.americanprogress.org/wp-content/uploads/issues/2008/06/pdf/id_divide.pdfhttps://cdn.americanprogress.org/wp-content/uploads/issues/2008/06/pdf/id_divide.pdfhttps://cdn.americanprogress.org/wp-content/uploads/issues/2008/06/pdf/id_divide.pdfhttp://transequality.org/documentshttp://transequality.org/documentshttps://new.truecolorsfund.org/wp-content/uploads/2015/05/Serving-Our-Youth-June-2015.pdfhttps://new.truecolorsfund.org/wp-content/uploads/2015/05/Serving-Our-Youth-June-2015.pdfhttps://new.truecolorsfund.org/wp-content/uploads/2015/05/Serving-Our-Youth-June-2015.pdfhttps://www.americanprogress.org/issues/lgbt/report/2013/09/26/75746/seeking-shelter-the-experiences-and-unmet-needs-of-lgbt-homeless-youth/https://www.americanprogress.org/issues/lgbt/report/2013/09/26/75746/seeking-shelter-the-experiences-and-unmet-needs-of-lgbt-homeless-youth/https://www.americanprogress.org/issues/lgbt/report/2013/09/26/75746/seeking-shelter-the-experiences-and-unmet-needs-of-lgbt-homeless-youth/https://www.americanprogress.org/issues/lgbt/report/2013/09/26/75746/seeking-shelter-the-experiences-and-unmet-needs-of-lgbt-homeless-youth/
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28 Center for American Progress | Expanding ID Card Access for LGBT Homeless Youth
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).
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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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