Which US states accept non-photo ID or mail ballot without ID verification in 2025?
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Executive summary
As of the reporting collected here, states fall into several categories: those that require photo ID, those that accept non-photo ID or other identifying information (sometimes “non-strict”), and those that effectively require no ID at the polling place but verify identity by other means; federal rules also layer extra ID requirements onto first‑time mail voters who didn’t submit ID when registering (federal documentation or a copy of ID with the ballot) [1] [2]. Sources disagree on exact lists and labels — e.g., NCSL/Wikipedia, WorldPopulationReview, Ballotpedia and Movement Advancement Project use different state groupings and terminology [1] [3] [4] [5].
1. The core federal baseline: extra ID for some first‑time mail voters
Federal law requires that people who registered by mail or online and have not previously voted in that state either send a copy of ID with their first absentee ballot or provide a qualifying document (paycheck, bank statement, utility bill or government document showing name and address). That federal rule applies in many states and creates an important exception to any claim that mail ballots never need ID [2] [6].
2. “Non‑photo ID” and “non‑strict”: different labels, different practices
Several data compilations classify a set of states as accepting non‑photo ID or as having “non‑strict” requirements — meaning voters can often cast a regular ballot even without the requested ID, or can cure the ballot after the fact. Wikipedia cites the NCSL categorization listing “Non‑photo ID requested (non‑strict)” states including Alaska, Colorado, Connecticut, Delaware, Iowa, Kentucky, New Hampshire, Oklahoma, Utah, Virginia, Washington, and West Virginia [1]. WorldPopulationReview lists a partly overlapping set — Alaska, Colorado, Connecticut, Delaware, Iowa, Kentucky, Missouri, Montana, New Hampshire, Oklahoma, South Carolina, Utah, Washington, and West Virginia — showing variation among compilers [3]. Movement Advancement Project reports similar but not identical counts and emphasizes that some states request ID but allow alternatives or affidavit cures [5].
3. Mail voting: all‑mail states and ID practices vary
States that operate largely by mail (Colorado, Oregon, Washington, Utah, etc.) still have different rules about what identification is required with a ballot or application. Ballotpedia and other sources note Colorado conducts all‑mail elections but maintains in‑person voting options and distinct ID rules; Oregon’s vote‑by‑mail system does not require photo ID at registration but may have other verification steps [4] [7]. Ballotpedia and Ballotpedia News track specific absentee ID rules and emphasize that state law and recent 2025 legislative changes mean the landscape changed in multiple states this year [4] [8].
4. Cure processes and provisional ballots matter more than “photo vs non‑photo”
Many states that “request” non‑photo ID or don’t require ID at the ballot box still use cure windows, provisional ballots, or signature/record checks to verify identity — practices that mean ballots can be counted if the voter later provides information or officials confirm details. NCSL and Wikipedia summaries explain that non‑strict laws let voters sign affidavits, have a poll worker vouch, or return documentation after Election Day; where strict rules apply, failure to produce ID can mean a provisional ballot that isn’t counted unless cured [1] [5].
5. Why lists differ: methodology, timing and recent 2025 law changes
Compilers use different cutoffs (photo vs non‑photo, strict vs non‑strict, in‑person vs mail), and many states amended absentee and ID rules in 2025. Ballotpedia reported 23 states amended absentee/mail laws in 2025 and highlights Maine’s rejected ballot initiative that would have required photo ID for mail voting — showing the legal picture is fluid [8] [9]. That fluidity explains why WorldPopulationReview, NCSL/Wikipedia summaries, and nonprofits like MAP or VoteRiders provide overlapping but non‑identical state lists [3] [1] [5] [10].
6. What the sources agree on and what they don’t
Sources consistently say: federal rules add ID requirements for some first‑time mail voters [2]; many states accept alternatives to photo ID or allow curing [1] [10]; and mail‑centric states still vary in their ID requirements [4] [7]. They disagree or diverge on which exact states fit “non‑photo” or “no‑ID‑at‑box” categories — e.g., Missouri, Montana and South Carolina appear in some compilers’ non‑photo lists but not others [3] [1] [5].
7. How to get a definitive answer for a specific state
Available sources do not provide a single authoritative, up‑to‑the‑minute list in this dataset. For a precise 2025 determination for a given state, consult that state’s secretary of state or the NCSL/Ballotpedia page that tracks changes; Ballotpedia’s absentee/mail‑in table and NCSL’s state pages are built to show detailed distinctions like cure deadlines and whether ID is required for absentee applications vs ballot return [4] [2] [11].
Limitations: this analysis relies only on the supplied sources, which use different categorizations and reflect law changes during 2025; discrepancies among them are substantive and expected [1] [3] [8].