assuming that you're talking about a driver's license, you're leaving out the important steps of passing driving tests and, more importantly, having a car.
In GA, to pick on the state I was living in when they started instituting these rules, they cut DMV locations at the same time as they started adding the ID requirements (or trying to, I moved and don't know the current status of their rules). Yes, the state ID was free, but their actions at the same time, intended or not, made it harder for people to get the free ID.