Fair point, I usually run into this when using Tor, or VPN when accessing content behind Cloudflare, and or similar services. This is some anti abuse stuff, but is often overly agressive with giving you captchas.
> Why make me solve a Captcha to log in when I've already completed one to register?
So attackers cannot password spray. This is typically after attackers has gotten access to the latest database breach, and are just blindly trying username/password combinations.
> Why make me solve a Captcha to pay utility bills? Is there some underground group of deviants going around surreptitiously paying other people's utility bills?
Sound like a strange place to have a captcha indeed. What information is needed in the form to submit it? Does it validate stuff that an attacker might want to scrape? I guess they added it for a reason.