Earlier quoted context omitted.
Can you describe how regulation solves this problem, how exactly are you proposing for this regulation to work?
I’m not GP, but I expect that regulation could help by requiring customer service. Similar to banking. And there could be an agency similar to CFPB where citizens could appeal who would then make formal investigations. So regulation would force the workflow described in the article to not have a grim outcome for elderly users of gmail.
But let's put aside the efficacy of said institution, and presume it's working very well. They got call from some Joe. He claims that certain email address belongs to him, but can't prove it. Forgot password, no access to phone. What this customer service of yours going to do? Let's imagine they can order Google to give the guy access to account. Is that a right thing to do? What if that email belongs to a journalist or a whistleblower and you just gave access to it to a Russian intelligence? Remember, benefits are one thing, but it's not the only thing for which email is used.
And if it really comes down to this, why is Google under obligation to provide emails for government use? Government can provide email access to everyone who needs it. If they require email in order to access benefits, well go ahead and set up necessary infrastructure. Why Google had to do it? Google provides service on as-is basis. If that service level is unacceptable for government use, well newsflash: it's not the only provider.