It’s high up in the chain and miserable is a side effect of underfunded. I spent some time working at the CA dmv headquarters and can honestly say it’s actually kind of crazy how small the crew is that gets to decide how every other dmv in the state is run. They are running on a pretty tight budget (we had to fund our own drinking water and coffee) and they are definitely not trendsetters. These are people that have spent decades working in low paid government jobs and aren’t interested in risking much of anything. They have little resources, are not on the bleeding edge of anything, they know what works and mostly stick to that.
As an intern that knew my way around mail merges, outlook, and excel macros (around 2010), their minds were blown. But also they patted me on the head, gave me a phone, and asked me to physically call every DMV office in CA to ask them how many physical manuals they needed shipped to their office