Implementation of REAL ID in the United States and Its Impact

Introduction: REAL ID to be Fully Implemented After 20 Years

Following the September 11 attacks in 2001, the U.S. federal government recognized the need to ensure the reliability and consistency of public identification in order to strengthen national security. Consequently, the REAL ID Act, enacted in 2005, aimed to introduce driver's licenses and identification cards that meet federal standards. This law enhances the identity verification processes for driver's licenses issued by each state government and establishes regulatory standards to allow these identification cards to be federally certified. Discussions about the implementation began immediately after the law was enacted, but actual application has been postponed several times. Resistance from state governments and civil society against the bill, lack of institutional preparedness, concerns over privacy protection, and external factors such as the COVID-19 pandemic have all contributed to the continued delays in implementation. However, the U.S. Department of Homeland Security has set May 7, 2025, as the final deadline for the implementation of REAL ID. After this date, individuals without identification that meets REAL ID requirements will be unable to access certain facilities, such as boarding domestic flights or entering federal buildings. This is not just a new identification system but will function as a federal security policy. The full implementation of this system will significantly impact both residents in the U.S. and foreign travelers.

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The REAL ID system has faced multiple delays in implementation despite nearly 20 years since its inception. Initially, there were many state governments that opposed the legislation itself, and concerns were raised over constitutional infringements regarding the federal government's demands for personal information integration. Particularly, some states like Oregon, Washington, and New Hampshire showed resistance to the implementation of REAL ID on the grounds of privacy protection and issues of state sovereignty. Additionally, the complexity of the REAL ID issuance process is seen as problematic. To obtain a single identification card, applicants must prepare documents such as a birth certificate, proof of Social Security number, and two or more proofs of residency, with copies often not being accepted. As a result, marginalized groups such as the elderly, immigrants, the homeless, and low-income individuals find it difficult to access the necessary documentation to obtain a REAL ID. With a surge in applications for REAL ID, excessive workload is concentrated at the DMVs (Department of Motor Vehicles) in each state. In populous states like California, Texas, and New York, it is common for DMV appointments to be delayed by several months, leading to long wait times on-site and ongoing complaints about administrative efficiency. Some states have introduced emergency appointment systems or are operating temporary issuance centers, but criticism has been raised regarding the lack of a systematic national response.

2-1. The Core and Scope of the REAL ID System

REAL ID is a federal standard identification that enhances the standards for driver's licenses or identification cards within the United States. Unlike traditional driver's licenses, it requires a thorough identity verification process for issuance, and the issued card features a mark either with a star or a gold circle containing a star, making it distinguishable. This indicates that the ID meets REAL ID requirements and is essential for presenting identification at security-sensitive locations such as airport security checkpoints (TSA), federal buildings, and military facilities. Situations in which a REAL ID is necessary include the following. First, when traveling on domestic flights within the U.S. After May 7, 2025, the TSA may restrict boarding for passengers who only possess a standard driver's license. Second, when attempting to access federal government buildings, military facilities, nuclear sites, and other secure locations. At these places, a REAL ID or an equivalent alternative document is required. Additionally, it may be required for some federal programs or administrative services. Alternative acceptable forms of identification besides the REAL ID include valid passports, passport cards, permanent resident cards (Green Cards), military IDs issued by the U.S. Department of Defense, and trusted traveler cards (such as Global Entry, Nexus, Sentri), all of which are recognized equally to the REAL ID. However, general student IDs, private identification cards, and membership cards are not recognized, so a clear distinction is necessary.

2-2. Issues in the Implementation Process

The REAL ID system has faced multiple delays in its implementation despite nearly 20 years passing since its establishment. Initially, there were many state governments opposed to the legislation itself, and concerns were raised about potential constitutional infringements related to the federal government's requirements for integration of personal information. Some states, especially Oregon, Washington, and New Hampshire, displayed resistance to the implementation of REAL ID, citing issues of privacy and state sovereignty. Additionally, the complexity of the REAL ID issuance process has been highlighted as a significant issue. To obtain a single identification card, applicants must prepare a birth certificate, proof of social security number, and two or more documents proving residency, with copies often not being accepted. Consequently, groups such as the elderly, immigrants, homeless individuals, and low-income populations—who find it challenging to secure the necessary identification documents—face significant barriers to accessing REAL ID. As the number of applicants for REAL ID skyrockets, state DMVs (Department of Motor Vehicles) are overwhelmed with excessive workloads. In highly populated states like California, Texas, and New York, it has become common for DMV appointments to be delayed by several months, leading to long wait times and dissatisfaction regarding administrative efficiency. While some states have implemented emergency appointment systems or operate temporary issuance sites, there are criticisms regarding the lack of a systematic nationwide response.

2-3. Discomforts Korean Travelers May Experience

The implementation of REAL ID affects not only U.S. citizens but also foreign visitors. Specifically for Korean travelers, if you plan to use domestic flights within the U.S. or visit federal facilities, it is essential to carry your passport. Previously, it was possible to supplement identification in some airports with documents like international student cards or foreigner registration cards, but after the enforcement of REAL ID, boarding an aircraft will not be possible without a passport or an equivalent form of identification. Korean travelers often leave their passports at hotels or carry only a photocopy to the airport. However, under the REAL ID implementation, if you cannot present your actual passport at the security checkpoint, you may be denied boarding. This is particularly important if you are using domestic layover flights or have a travel itinerary that involves significant intercity movements, as carrying your actual passport is essential. Furthermore, when visiting major public institutions in the U.S., such as federal buildings, military museums, or the National Archives, presenting identification that meets REAL ID standards will also be required. When traveling as a family, adults must carry their passports, while minors under 18 may be subject to exceptions based on the consent and accompaniment of an adult. However, this can still vary depending on the airline or TSA's assessment, so prior verification is necessary. Additionally, some airlines or travel companies may not provide sufficient information regarding REAL ID implementation. This can lead to situations where travelers first encounter boarding restrictions at the airport, making it necessary to include notifications about carrying a passport from the moment of ticket reservation.

2-4. Expected Changes on Site After Implementation

After the implementation of REAL ID in 2025, the intensity of ID checks at airports in the United States is expected to increase. The TSA will strictly verify passengers' identification, and if a non-REAL ID marked ID is presented, additional identity verification procedures or boarding denial measures may be taken. In the early phases of implementation, there may be increased congestion at airport security checkpoints due to confusion among travelers who have not received this information. Additionally, the administrative burden on DMVs is likely to increase. As the implementation date approaches, there will be a surge in demand for ID issuance, which may lead to reservation systems being overwhelmed or wait times for issuance extending to several months. This calls for improvements in federal systems and active cooperation from state governments. The aviation and tourism industries may also experience short-term shocks. Due to a lack of REAL ID holders, there may be temporary cancellations of domestic flight bookings, boarding delays, and a reduction in the number of passengers, which could overall impact the regional tourism industry. This could be especially inconvenient for travelers for whom domestic flights between major tourist cities are important. Nevertheless, as time passes and the popularity of REAL ID increases, along with heightened public awareness, the stable establishment of the system seems feasible. The TSA and each state government are considering various measures, such as an initial grace period or flexible response strategies, to minimize confusion during the implementation phase.

Conclusion: Balancing between Strengthening Identification and Freedom

The REAL ID system is a policy aimed at strengthening federal security frameworks and building a trust-based system throughout American society, going beyond a simple replacement of identification cards. It is clearly a necessary system as it contributes to reducing the risks of terrorism and crime by standardizing the criteria for identity verification. However, a lack of practical preparation, inadequate communication of information, and inefficiencies in administrative processing are exacerbating initial confusion during implementation. In particular, the structure that places excessive burdens on socially vulnerable groups and foreign visitors is far from the original intent of the system. Therefore, to ensure the effectiveness of the system, it is essential to promote systematic communication and administrative improvements that help both citizens and visitors understand and engage with the system without confusion, rather than merely enforcing its implementation. REAL ID will become the standard for identity verification within the United States and is a system that has real implications for both domestic and international individuals. Korean travelers should adequately prepare based on an understanding of this system, and all foreign visitors to the United States should pay extra attention to carrying and utilizing their passports. Ultimately, the REAL ID represents an experiment in finding balance between the values of freedom and security, with its success dependent on thorough preparation and operational flexibility.