Eleven states and Washington, D.C., have laws permitting undocumented immigrants to get some sort of special driver’s license or permit, said the National Conference of State Legislatures. Individuals who can’t show that they are in the U.S. lawfully typically are required to provide proof of state residency, tax returns or other identification to qualify for licenses. But in larger, more populous states, where substantial numbers of immigrants may be eligible, the new regulations are proving tricky to roll out.

In Colorado, the state is only offering appointments to apply for the licenses at five of 37 motor vehicle division offices. While immigrant advocates praised the new law, they raised concerns that some living in rural areas would have to drive hours to reach the nearest office.

“Some people are frustrated because they don’t understand why the state government would want them to drive without a license over highways and mountain passes, essentially endangering themselves and other people if there were an accident,” said Nicole Mosher, executive director of Compañeros, which provides resources to immigrants in southwestern Colorado.