Your issue is guideline 5.1.1 (v):
5.1.1 (v) Account Sign-In: If your app doesn’t include significant account-based features, let people use it without a log-in. Apps may not require users to enter personal information to function, except when directly relevant to the core functionality of the app or required by law.
In the notes to App Review explain why the app needs an "identification number with a generated password by a governmental entity (and) requires as well an email or phone confirmation to be able to login in the app."
It might also help your chances of approval if the app opened and did something a little useful for the general public user without requiring the log in. If an authorized user then logged in the app would do much more.
Thank You for the quick response. I'll try to explain it in the notes then.