It is called "the dual state" [0]
At least in nazi Germany, the state was explicitly designed like that. Most people should never come into contact with the prerogative state and spend their lives in the normative state, as capitalism doesn't work well in a prerogative state. You need to believe that punishment doesn't come arbitrarily in order to follow the rules.
But of course, things are very different in the prerogative state, where actions have unclear consequences.