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A House and Senate conference now taking place has included the requirements, which apply to all 50 states and other jurisdictions that issue licenses, in a supplemental appropriations bill for Iraq, aides involved in the process said on Monday. The draft legislation will be completed in the next few days and is all but certain to pass.

State officials complain that the new requirements will add a costly, complicated burden to the issuance of driver's licenses, which has been their responsibility for almost a century. Civil rights organizations and privacy advocates say that they are concerned that a standardized driver's license would amount to a national identification card and that a central database would be vulnerable to identify theft.

The proposed regulations, intended to deter terrorist attacks, would replace a provision of the intelligence bill passed in December that called on state and federal agencies to develop new rules for licenses. That law did not specifically require states to check the citizenship or immigration status of applicants.