You've misunderstood, it means the IDENTIFICATION CARD must be resistant to fraud, tampering, exploitation, etc. The government issued a federal standard for HSPD-12 compliant ID cards called FIPS 201. There are a lot of requirements but they are all specific to the card...for example, it must have a smart card chip that meets security standards for a cryptoprocessor (FIPS 140), it must use an identity applet on the card with various requirements on PIN policy, certificates, etc. The physical card has to meet anti-tamper requirements and have security features like an agency seal printed with optical variable ink (holographic ink).
And on it goes. But the criteria for issuing an ID card to an individual? That's got absolutely nothing to do with HSPD-12.