If it helps, here's another way to think about it:

If you're a photographer, and someone signs a photo release form for you, that means you're allowed to use their photo in marketing materials.

It doesn't mean you're allowed to use their photo to get a passport in their name.

The photo release form doesn't need to have additional language saying "the photographer agrees not to use the photo to create a fraudulent passport" for this to be disallowed.