Whats a law without enforcement?

I read this interesting statistic in latest issue of Business Today.

660,000 individuals made high value purchases in 2005-2006. Of these, only 184980 people declared their PAN (permanent account number) as required by law.

So what exactly does “required by law” mean when an overwhelming 72% of these transactions did not comply? If this thing is a law, how did the shops and sellers manage to sell high value goods without asking for PAN?

What’s a law without enforcement? Guidance.

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