Lee County’s two-year property fraud prevention pilot, the only one of its kind in Florida, revealed both the promise and complexity of requiring photo identification to deter deed theft, according to a newly released legislative report.
The pilot program, led by Lee County Clerk and Comptroller Kevin Karnes, ran from July 1, 2023, through June 30, 2025, and required anyone recording a deed to present government-issued photo identification. The goal was to create a stronger investigative trail for law enforcement and make fraudulent transactions more difficult to execute.
The 18-page report, submitted to Gov. Ron DeSantis and state legislative leaders, details the program’s phased rollout, operational challenges, community feedback and early enforcement outcomes. It also provides recommendations for legislative changes that could allow the program to expand statewide.
During the pilot, the Clerk’s office recorded 76,866 deeds and collected 190,667 identification records, the report states. About 75% of deeds were submitted electronically, requiring extensive coordination with eight third-party vendors to modify software systems so nonrecordable ID images could be securely collected and stored.
Implementation challenges were substantial. Early in the program, nearly one-third of submitted deeds were rejected because filers were unaware of the new ID requirements or submitted illegible documentation. That rejection rate steadily declined as awareness increased, falling to about 7% by the end of the pilot.
Kevin Karnes
Lee County government
Feedback from the public was mixed. Individual property owners generally supported the added safeguards, while legal and title professionals often criticized the process as burdensome, inefficient and potentially invasive, the report states. Some argued that fraud prevention already occurs earlier in the transaction process, while others raised concerns about data security and workflow disruptions.
Despite those criticisms, the report documents multiple suspected fraud cases that were flagged during the pilot, including criminal and civil actions involving alleged forged deeds and identity misuse. In one case, authorities investigated a man accused of attempting to steal his aunt’s home, although state prosecutors ultimately declined to file formal charges. Other cases resulted in civil judgments voiding fraudulent deeds.
The report also notes significant national interest. Recorders from counties across the country, including jurisdictions in North Carolina, Nevada, Wisconsin and New Hampshire, contacted the Lee County Clerk’s office seeking guidance, with many expressing interest in replicating Florida’s approach.
“This pilot program was the first of its kind, not just in Florida but likely the United States, to combat title fraud against owners of real property,” Karnes said. “Property fraud is one of the fastest-growing crimes, and at the Lee County Clerk’s office — we are doing everything we can to stop it.”
Among its legislative recommendations, the report calls for allowing counties to adopt the program voluntarily, strengthening public records exemptions to protect collected identification data, requiring Florida-based notarization for real estate transactions and increasing recording fees to fund technology upgrades and enforcement.
Although the pilot program has ended, Karnes continues to urge residents to enroll in the Clerk’s free Property Fraud Alert service, which sends notifications when documents bearing a person’s name are recorded.
“I look forward to building upon the program’s success and continuing every effort to ensure that no Floridian ever loses their home to fraud, because even one stolen home is one too many,” Karnes said.