For example, let's say that to do some specific work the law says a degree is required. Normally, a degree is something that a university gives to its successful students so it shouldn't be that big of a bureaucracy to hire someone for that job, right?
firts, they start by simply taking the xerox copy of the diploma. Then someone starts hiring people without a diploma and forges a fake xerox copy and gets caught? To solve this, bureaucrats introduce a requirement for diploma registrations so they can check against fakes.
Congratulation, now you have an office visit step where you go show your original diploma.
Unfortunately, some people start showing fake diplomas. Once the bureaucrats catch on, they introduce a protocol with the universities to start checking the diplomas. Unfortunately, some universities say they can't accommodate that, others say they can do it moving forward but can't to for those who graduated more than 5 years ago. Also, some people studied abroad, others have their institutions merged or seized to exits.
Congratulation, now you have multiple ways to accomplish the same thing. You will need to fill the correct form.