Uber found a way to abide by New York State's existing regulations for a special license for drivers and commercial insurance. Everywhere else it plays make-believe - 'we're just a technology company' - for as long as it can.
The end-game in Europe is probably that Uber Technology will abandon its ambitions to be a not-a-taxi company, and provide its app to local transportation companies who are already regulatory-compliant.
The taxi company that I used to drive for was large enough to build its own modern [1] app-based dispatching system. So they don't need uber's technology anymore.