If you are writing something from scratch yes. But if you inherited a codebase written by somebody else who didn't to TDD so there are no tests, you can still use TDD for refactoring.

So any new changes/bugfixes you will make to this legacy codebase, first you will write a test and then make change. That's pretty standard. Many legacy codebases will have no tests and people who wrote the code will have left long time ago.