The answer is easy: it means you can only file an application for financial aid if you have a tax return. The reason for this is that the federal government has a program called the Federal Pell Grant that is awarded to students who qualify. The amount of the grant is determined by the cost of attendance at the school, so it is very important to apply as early as possible.
The U.S. Department of Education offers some grants directly to students who qualify based on financial need. Most notably, the Pell Grant is the largest federal grant available to undergraduates for this purpose. The maximum Pell Grant award is $5,815 per year. (The average award is about $3,500.) And, like the Federal Supplemental Educational Opportunity Grant, the Pell Grant can be awarded at the state level, enabling the student to attend the school of his or her choice.
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