Because they do not seem to be able to tell the difference.
When DD was born, we phoned them to ask about Kindergarten registration, having heard from friends in a nearby city that there could be a long waiting list. They told us that there was absolutely no waiting list in our little town, that she'd be able to go at 2 and a half, and that we should register 'nearer the time'.
When she turned 2, we went to the town hall. We were told that under no circumstances would she get a place before she turned 3, and that we were in the catchment area of two kindergartens, which we could look at at our leisure and decide upon. We would need to firmly register with one 3 months before she was due to go.
So, today, a little more than 6 months before she is due to go, I went back to the town hall, having already decided on which one we like best, and wanting to properly register for it. No point waiting another 3 months, especially as I'm due in October with Dc2. I was told that there are no places left at our preferred kindergarten, but she could go on a waiting list. I argued the point and was told she would 'see what she could do' and I should phone back next week.
Every conversation was with the same woman, by the way. FFS.