Or groups of people live in certain geographic areas and are not served by public transit or near government offices like a DMV. That can have the effect of making it generally harder one one group despite equal competence.
https://www.snopes.com/news/2015/10/01/alabama-drivers-licen...
https://www.outsidethebeltway.com/georgia-county-abandons-pl...
https://www.usatoday.com/story/news/2018/10/30/midterm-elect...