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Bulgaria is a member of the EU, so EU citizens need only ID Card. Non-EU citizens need a visa and passport.
Warning! If you, as a non-EU citizen, hold a residence permit of an EU country or a Schengen visa, you DO still need a visa for Bulgaria because as of August 2013, the country doesn´t belong to the Schengen area yet. (However, if your travel/transit doesn't exceed 48 hours, you are allowed to be in the country without a Bulgarian visa but with an EU residence/visa).