@kentuckycat- I understand yours and Izzy78's concern towards governmental agencies issuing temporary passports to the wrong people but it is their job to make sure mistakes are not made and they have well established rules and guidelines in dealing with every request on a case by case basis.
Each and every request for a temporary passport is looked at individually and the reasons for requesting one has to be thoroughly explained. Most temporary passport requests are made in regards to having a passport stolen, which is not at all unusual and set guidelines have been set in dealing with this situation.
For other types of requests I guarantee that they are looked at by the appropriate people and heavily scrutinized. You can never be too careful nowadays with international travel but with the all the red tape that one has to go through to receive a passport in the first place it is very difficult for the wrong people to obtain a temporary passport.