If they have a picture than why on earth is the passport and dvla database not checked, rather than wasting time and money sending letters on a whim?
Really? For a start you'd probably be the first person to whinge with lots of 'APALLING' and 'WOEFUL' hyperbole if they *were* allowed access to such information at stage 1 without any court involvement, secondly many people have neither a passport nor a driving license anyway.
Even the police don't cross reference the photograph they take as evidence with sources like this to identify you when they send you a fixed penalty notice of speeding, by post. If somebody else is driving your car and you are totally innocent, if you just totally ignore all corrospondance you'll end up in court. Similar thing really.
The situation is absurd, by simply asking name and address they open themselves to making wrongful accusations and the criminal simply getting off scott free because they have no idea who he is. Common sense would dictate arresting them at the scene if they cannot pay or provide proper id.
Carrying identification is not a legal requirement in this country. If it was I'd imagine the 'OMG OUR RIGHTS IGNORE THE LETTER' crew would be first in line for an anti-ID-card flag for the protest marches. So they judge each case on its merit - if they suspect that the person is being untruthful, they may take a different line. But if they don't - then they won't. They take the name and address, pop a thingy in the post and 90% of people will rightfully pay up and thats the end.
And when they get it wrong, the wrongfully accused gives them a quick telephone call, has a chat about the situation, and more often than not, it goes no further once it becomes obvious they've got the wrong person.
Wheresa if you just ignore it, as is your 'right', you will have your day in court, as is your 'right'. Not very pragmatic really and a massive waste of time for the OP.