Earlier quoted context omitted.
Plenty of people only have a SSN card and a birth certificate, as they neither drive (perhaps due to age or preference) or travel by plane (often for financial reasons or preference).
As I said in my other reply, their lack of governmental identification is by choice. Should they choose to not obtain them even if they have the opportunity, then that is their problem.
Additionally, how are you going to handle undocumented persons.