One of the difficulties identified during the course of the study of Bill C-31 was the absence of a national identification card. Because of this, the only cards that truly fill the requirements of Bill C-31 are cards delivered by provincial authorities. However, even these cards are not provided universally to all voters. There was a need to include in Bill C-31 a list of identification documents that could be used as an alternative, and most of them do not bear a photo.
On December 4th, 2007. See this statement in context.