Well, in one case, we work very hard to try to get everyone vaccinated driving vans around with shots and doing everything we can to get shots in arms (and is free). In another case we have no problem telling people that the ID office within 100 miles is open the 5th Wednesday of months that have a 5th Wednesday (and is a "nominal" fee). Because in one case society benefits from everyone getting shots and in the other case the decision makers benefit from not everyone getting an ID.

That is to say, one major difference is the availability of the papers.