And being able to produce the qualifying documents for the ID. There’s a non-trivial number of people (usually older, lower income) that do not possess, nor have ever needed to possess before, a birth certificate.
Hell, I was one of those people before I needed to get a passport (I guess I had it when I got my first DL, but it must have been with my dad or something). Thank god Oregon will mail one to you easily, if I was Californian the process would have been in for much more hurt (as I found out with my son!).