The indicator expressly mentions active user IDs. It should be left at the discretion of the organization to determine whether accountability must be enforced over all or a subset of inactive user IDs as well.
For instance, some high privileged accounts may be purposefully deactivated to reduce the attack surface of systems and reactivated as part of break-the-glass procedures. Such inactive accounts typically require clear accountability.
Account sharing
Shared accounts is a well-known bad security practice that prevents traceability.