Most bureaucrats are also humans, and not solely or even mainly motivated for their every action by having it rewarded with maximum salary profit.

Plenty of dysfunctional bureaucratic organizations have high rates of occupational burnout and high employee churn due to the stress of repeatedly enforcing policies the employee knows full well are morally reprehensible.

So in real psychology, I claim there's plenty of incentive, even for the majority of people in the organizations.

Worse, their boss's (maybe not direct boss, but somewhere up there) prestige, power and career potential directly tracks headcount.

So even if the DMV clerks want it to not suck, management want it to suck.