Hrmc- child national insurance number- dd doesnt exist?

[Boxshibe]

Dd turned 17 last month and we still haven't had her National insurance number.
I've phoned hrmc a number of times but they don't seem to be able to find her. She doesn't have a passport so can't show who she is. We have a birth certificate and claimed child benefit.
Going round in circles.

Anyone else had this?

I was always working so don't think it makes any difference to me.