There is something here that hasn’t been address: A U.S. citizen living outside the U.S. who does not have a state driver’s license, only the drivers license from the country where one lives. Maybe the U.S. Embassy will be called upon to take care of this as they do passports.
Since I have had to carry various IDs all my life once I step out of the house (at one time I was carrying 4 wallet-size IDs), it doesn’t bother me. I even have to show the local government issued ID to purchase something with a credit card, which I consider a good idea because it is for everyone’s protection.
Yes. An expat coming back to the U.S. may well not have any U.S. utility bills (and where did they get this bizarre utility bill presentation requirement from? France?) or mortgage papers. He's likely to have a passport, social security card, and maybe a foreign driving license.
How does he get back into the system?