This is really about the role of rules in managing risk.
Lots of rules means that you don't have to think for yourself.
The motive behind this can either be laziness or fear.
I guess if someone is more afraid of the authority figure (punishment for transgression) than the real danger then they have 'taken their eye off the ball' so to speak. I guess this is also true if they trust that 'all is well because the rules have it covered.'
The hard bit for some is having to think for yourself as it can mean getting into conflicts.
Guidelines are better than rules.
-------------------- Rules are for the guidance of wise men, and the obedience of fools.