I am not sure I understand the distinction you're making. Suppose you and I come up with our own passport and issue it to people. Its just a piece of paper say

I am not sure I understand the distinction you're making. Suppose you and I come up with our own passport and issue it to people. Its just a piece of paper saying "The bearer of this paper is ok" and we stamp it. Do you think the authorities care if the person wrote up their own one or if they got ours with our special stamp?