Why are action items an additional step for users after enrolling in benefits? Are they necessary?

I have not been able to understand why action items are a necessary step for users in benefits. It would be much easier for the user if they were required to upload the necessary documents and designate beneficiaries / dependents in the same process of enrollment as selecting a plan/option etc. Our client is frustrated that this module requires the user to take an additional step to become fully enrolled in benefits that require document uploads, and it is easy for the user to forget that they have pending action items. Maybe this process makes a lot of sense for