Issuance of Driver Licenses and Identification Cards to Prisoners

Kim, David; Porter, J. David; Doolen, Toni; Pietz, Amanda Joy · 2010 · ROSA P / Oregon. Dept. of Transportation. Research Section

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Summary

This report evaluates alternatives for issuing driver licenses and identification cards to inmates in Oregon prior to their release from prison, mandated by the 2009 Oregon Legislature’s House Bill 2489. The research was motivated by the recognition that lacking valid identification creates significant barriers to successful re-entry, including difficulties in securing employment and establishing bank accounts. The study aimed to identify feasible issuance models, assess their costs and security implications, and determine the proportion of the inmate population eligible for such services. The methodology involved a comprehensive survey of 49 U.S. states, with 31 responding. Thirteen states reported existing pre-release issuance systems, while others had terminated programs or conducted pilots. Researchers analyzed data from these states, including documentation requirements, application processing features, and system structures. Additionally, the team analyzed one month of Oregon Department of Corrections (DOC) release data to estimate demand and eligibility. Eligibility was defined by the possession of required documentation, specifically a birth certificate and social security card. The study also incorporated data from a 2009 Oregon pilot test that transported inmates to a DMV office. Five specific issuance alternatives were assessed: permanent DMV installations at correctional facilities, mobile units, DOC personnel processing applications, transporting inmates to DMV offices, and renewing existing IDs using the "Valid With Previous Photo" (VWPP) process. Key findings revealed that only 35% of inmates released into Oregon were eligible to apply for an ID or driver license pre-release, as only 28% possessed both required documents, with an additional 7% having previously verified files. No single system type predominated across other states, and no correlations were found between state characteristics and system choice. The assessment of the five alternatives showed significant variation in cost, security risk, and capacity. The mobile unit was the most expensive option, with setup costs of $1.1 million and high personnel requirements. Permanent DMV installations at all facilities also incurred high costs ($357,000 setup). In contrast, the VWPP process was the least expensive ($3,000 setup) and carried minimal security risk, though it could serve only 28% of releases. Transporting inmates to DMV offices and DOC application processing were mid-range options, with setup costs under $1,000 and $239,000 respectively, but varying operational costs and security risks. The study concludes that while pre-release issuance is feasible, the low percentage of eligible inmates limits the potential reach of any system. The authors note that some states suspended similar programs due to low participation rates and documentation barriers. The report provides detailed cost and security assessments for each alternative to assist the Oregon DMV and DOC in selecting a model that balances operational efficiency with the legislative mandate to aid offender re-entry. The findings suggest that leveraging existing remote renewal processes (VWPP) offers a low-cost, low-risk entry point, while more comprehensive systems require significant investment and infrastructure.

Key finding

The Valid With Previous Photo renewal process was the least expensive alternative with minimal security risk and could serve up to 28% of eligible inmates, whereas mobile units and permanent DMV installations were the most expensive options.

Methodology

mixed_methods

Provenance

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Topics

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• licensing policy