That comes from a time/place where it was issued to 100% adult citizens and it was illegal not to have it - i.e. you have a duty to get one when you come of age or become a citizen or your old one expires, and it's a misdemeanor with some fines if you don't, plus quite a few other legal interactions will be simply refused until you get that sorted out.

Now an ID card is a valid option so some people have only the ID card and not a proper passport; but there is an expectation that everyone (who isn't e.g. actively hiding from the authorities as an outlaw) would have a valid ID and if they don't it's acceptable to require that they get one before they can fully interact with the rest of the society e.g. government, banking, driving, owning real estate or cars, any legal contracts such as rent or credit, etc.