It was easier back before the mass electrification of everything, because if the local sheriff knew who you were they could vouch to the local DMV and you’d be good to go. Now everything is fraud proof and trickier.
And if you lose your birth certificate you may have to start all over again!
There are ways to get an ID via other methods and then build up but it can be tricky and difficult to navigate. And without a stable address it can be nearly impossible.
It is (was?) the case in my large (500k+) city in the 90's at least. If you were lacking all forms of identification to get an ID, you could use a neighbor or family member who had an ID to vouch for you.
I do believe it was the vouch + another form of identification, but I distinctly recall having to do this for a replacement ID when I couldn't find my papers after a move.
And if you lose your birth certificate you may have to start all over again!
There are ways to get an ID via other methods and then build up but it can be tricky and difficult to navigate. And without a stable address it can be nearly impossible.