So are you saying that if

- YOU had disabled the password reset, and
- YOUR service were down, and
- you were communicating with me via email (possibly from a
different email address to the one in our database)

YOU would not want me to reset your account password based on an
image of a utility bill, but would insist upon a government ID that
I recognise?
To clarify: if there is a better solution than a government ID image, then let's explore those options. But being able to gain access to my account by supplying a potentially 'shopped utility bill seems risky to me.
-- 
Aaron B. Russell
http://unadopted.co.uk
+44 20 3137 4147