Of course it's not that simple. First of all, the waiver form you linked to is applicable to USCIS, which is part of the Department of Homeland Security. Passpo

Of course it's not that simple. First of all, the waiver form you linked to is applicable to USCIS, which is part of the Department of Homeland Security. Passports are issued by the State Department. As far as I can determine, they waive the application fee for US government employees who travel only on official business, but there's no waiver for economic hardship. Second, you can't just wave your hands and say "those who truly don't have the means ought to get help from the rest of us" as if saying it makes it so. If you suggest a policy change that will disenfranchise the poor unless some other public assistance program is established, you are de facto suggesting disenfranchisement. Creating an explicit financial disincentive to vote is not quite as bad as making it impossible to vote at all, but it's close.