I'm confused.
From SSA:
If you do not have permission to work: Lawfully admitted noncitizens can get many benefits and services without a Social Security number. You do not need a number to conduct business with a bank, register for school, apply for educational tests, obtain private health insurance, apply for school lunch programs or apply for subsidized housing. You cannot get a Social Security number for the sole purpose of obtaining a driver’s license.
Government benefits or services: If you do not have permission to work, you may apply for a Social Security number only if:
A federal law requires you to provide your Social Security number to get a particular benefit or service; or
A state or local law requires you to provide your Social Security number to get general assistance benefits that you already have qualified for.
If you need a number to meet these state or local requirements, you must bring us a letter from the government agency. It must be on letterhead stationery (no form letters or photocopies) and:
Specifically identify you as the applicant;
Cite the law requiring you to have a Social Security number;
Indicate that you meet all the agency’s requirements, except having the number; and
Contain an agency contact name and telephone number.