That's odd to me.
Here in Canada, at least in my province, you don't normally send in paperwork of that sort - you would go to a registry office. (A registry office here isn't where you go to get married; it's where you go to get civil documents such as your marriage license, birth certificate, driver's license, vehicle registration renewal, etc. And yes, they do the driving tests if you're just being licensed for the first time.) If you need a replacement license due to renewal, yours being lost, etc., they'll give you a temporary paper license. The only caveat is that it does not have a photo, so can't be used as photo ID. But it is a completely legal license. You get your official card in the post later.