Washington has had EDL for 10+ years. When the program first came out one had to bring a box full of documents, even if one of them was a US passport. It was much easier and cheaper to get a Passport Card than the EDL back then.
When I renewed my driver license this year, the process was much simpler. My expiring license, passport card and voter registration card did the job to qualify for the EDL. The state charges $7 year more for the EDL vs. a 'regular' license. The state gives you the choice of a 6 yr or 8 yr license. Had the new license in less than 2 weeks.
With 50 states, I suspect there are at least 49 variations of fees and requirements.
The $45 fee should push most of those currently without REAL ID who want to fly to go get it, rather than get $pecial treatment at the airport every time they fly.