> “Access procedures are especially critical with respect to this proposed rule because ‘the class of persons affected’ – the relevant category pursuant to 1 CFR § 51.7(3), as quoted above – obviously includes individuals who do not have ID deemed compliant with the REAL-ID Act.
These laws "apply" to platform makers who are attempting to create Real ID mDLs, not people who want a REAL ID in the abstract. Someone without a REAL ID cannot get an mDL, regardless of the text of these rules.