That might be the wrong way to look at it, or rather, it doesn't take into consideration the natural minimum. It may be that just 5% of people will continue

That might be the wrong way to look at it, or rather, it doesn't take into consideration the natural minimum. It may be that just 5% of people will continue to break the rules _despite_ the bureaucracy. So, how many of the 95% are following the rules _because_ of the bureaucracy? I suspect it's much higher than most people would care to admit.. just look what happens when the system or enforcement mechanisms break down.