You've misunderstood what racism is if you think it's defined by whether or not the victim is aware of racism. Of course that's often very relevant but absolutely not necessarily.
If I walk into a friend's business, and say "woah, I did not know you hired a , they're all stupid you should fire him" and the friend immediately goes "ooh I forgot to be racist, yea I'll fire them immediately" then their firing would absolutely be racist despite the person being fired not witnessing the racist logic that causes it.
Equally with voter ID laws, they're not racist because they put mean racist message onto the ID cards or something, and whether or not victims of that sort of racist politics notice doesn't mean racism isn't involved. If somebody says "I don't think we need voter IDs, but in my district only the don't have photo IDs and they would all want to vote for my opponent, so let's require ID to vote!" then those people have had a racist and very unfair thing happen against them, regardless of whether they are "thinking of racism".
edit: and as a slightly easier example, if I edited a newspaper and decided that for every negative story about one skin colour would get front page billing, and every negative story about my own skin colour would get binned rather than published, then all my paper's readers might be able to look at every single article without seeing any racism in them - but their not knowing doesn't change that my theoretical editing was racist.