The issuing of driver's licences isn't limited to going to a testing facility and getting tested by the government; some individuals have taken it upon themselves to get the authority to issue licences. I've never had that interest, because it's very onerous and it's a responsibility that should be taken seriously by those who do it.
Many driving schools have been reported in the news lately as being shut down as a result of the fraudulent activities they'd embarked on. It's not a secret out there. Most drivers know this, whether they've obtained their licence through paying a fee of several hundred dollars for their licence.... Training climbed as high as $10,000 once the MELT program came into play several years back. Competition started to drive the price down, of course, but not to the point where you're paying hundreds of dollars instead of $7,000, $8,000 or $9,000 for a licence.