At least in my state I have seen this (Tx).
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In my state there’s a law that you need like 10,000 signatures or something to get the state to make a specialized plate. When someone realized this, they set about getting enough signatures to allow for a specialized plate foe alumni of their school. When other organizations realized this, they did the same. So there was an explosion in new, specialized plates. Any group with someone sufficiently organized to set up a petition could do it. And that’s how you get a special plate for your particular organization or job.
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