No. The absence of any acceptable form of government identification is a rare circumstance. It is not enough for someone to lose their driver’s license or leave their passport in another purse. Instead, the person must truly not have access to government identification.
For example, if your great-grandma was born in a farmhouse in Wisconsin, and there was no record of her birth, she may be unable to obtain other forms of government-issued identification. On the other hand, if you lost your driver’s license, you can (and should) take the steps necessary to have a new driver’s license issued.