Two reasons. The first, to which you allude, is that those who make the rules are trying to stay in their jobs. It's a symptom of democracy. The second is that

Two reasons. The first, to which you allude, is that those who make the rules are trying to stay in their jobs. It's a symptom of democracy. The second is that these are all knobs one can turn to fine-tune incentives of behaviors; cost complexity isn't inherently bad.