If governments and cellular service providers already have the capability to track cell phones users and generate lists of people in close proximity, then why d

If governments and cellular service providers already have the capability to track cell phones users and generate lists of people in close proximity, then why does Apple and Google need to create this contact tracing platform? Why are governments and cellular service providers not using this existing capability if they possess it? I am not trying to imply that they do not have this capability. It just seems odd. I also have a question: can this feature disabled simply via disabling Bluetooth?