A quick google search suggests that it is easier to list the states that do have a provision for free ID than to list the ones that do not.
It is also not that simple, it is not just about cost, there are other barriers to getting identification. Availability of DMV offices, limited hours, etc.
Perhaps we should make passport cards free, and then fund an organization to proactively identify and issue cards to every US citizen who does not already have one. Then we can require that card in order to vote.
Problem, of course, is that the US Constitution makes voting a state problem. So we are probably doomed to continue having some states adding as much friction as possible while others seek to eliminate that friction altogether.