Depends.

You can argue that it's basically art/political speech. You've done it to draw attention to flaws in the approach and to highlight how ineffectual the current system is, and that if you actually wanted to do make fake IDs you'd take a much less high-profile approach. As such, there's no actual criminal intent required.

Don't know if a judge would buy it though.

I think it would fall under forgery which is definitely illegal and doesn't require you to use the ID.

That would be a bit harder to make stick, but I would agree.