Why? In China, making firecrackers is not illegal, selling firecrackers is not illegal, but setting off firecrackers is "illegal." Mining coal is fine, selling coal is fine, burning coal has issues. Manufacturing electric vehicles is compliant, selling electric vehicles is compliant, but putting electric vehicles on the road is not compliant. Parking on the roadside is not compliant, but drawing a box around it makes it compliant. Setting up a stall is not compliant, but paying some money makes it compliant. The same thing, when done by an individual, is called a violation; after permission is granted, it is called legal. The fundamental reason for this is:

The most important thing a system cares about is often not who is right or wrong, but whether order is maintained. What it truly manages is not necessarily the behavior itself, but the management: who has the qualification to do it, who is allowed to do it, who is within the system. For the system: disorder is more dangerous than right or wrong. Loss of control is more sensitive than fairness. So many things are not absolute prohibitions, but: you cannot bypass the system and do it yourself.
This is also why many rules seem contradictory; the same behavior is illegal without permission, but becomes compliant once within the system. Essentially, the core ability of a system has never been to judge good or evil, but to define boundaries, allocate qualifications, and maintain control.
If you don’t like this order, the first thing to consider is whether you have a problem yourself. Are you subconsciously maintaining this order all along?