In 2005 it was the answer of 21-member Carter-Baker Commission on Federal Election Reform:

“We are recommending a photo ID system for voters designed to increase registration with a more affirmative and aggressive role for states in finding new voters and providing free IDs for those without driver’s licenses. The formula we recommend will result in both more integrity and more access.”

In 2013, it is Jim Crow racism and the reason to keep Section 5.  

Republicans should take heed.  No new recommendations until the previous recommendations are adopted.