Governments can and do issue ID using whatever criteria they see fit. But the lesser the criteria the weaker the proof. I mean, you need a photo at least, right? And presumably some means of proving that photo is you (for passports in UK you have to get a doctor or similar person of authority to sign a declaration). So it's not such a simple matter.
In my country where everybody has a national ID, you go to police station when you turn 15 to pick it up. You don't have proof of address when you are 15 because you live with your parents. So they send letter to the address of parents.
