I have, and I have seen it when acting as Judge of Elections in my area. People in cities or just having moved from a city area often don't have driver's licences and/or passports. Many of them are poor and poorly educated, use mass transport, cannot afford cars and/or car insurance, have no need for a driver's licence because they do not need a car in the city, etc. Many poor people don't even have credit cards. There are also people who have suspended driver's licences. They may have credit cards or a work ID, etc, but not a government issued ID given the licence suspension and having never needed a passport. Most Americans do not have passports given they travel infrequently if at all outside the US. Only now may this number increase somewhat given regional travel to Canada, Mexico and the Caribbean now requires a passport. Still, many Americans don't even travel to those places. Pennsylvania does offer a formal ID card from the Department of Transportation for those without driver's licences, but many people are unaware of that and/or cannot afford it, especially in the cases of poor people, old people, uneducated people, etc.