as someone that has over 30 years in the field that has created scanning systems, drivers, and compression algorithms, i can assure you a scanned document does not come in 'parts'. of course it does depend on the scanner, but the vast majority will create a simple image from the scan. the image would either be lossy or lossless. the format could be single image or allow for multiple pages, as with TIFF images. but these pages would be from successive scans and not from a single scanned page.
in any event, there is no way a scanner would scan an image then 'lift' SOME written text away from the background. it would either 'lift' it all or none of it. i could understand removing the background, kinda, as it could save space. of course, if i were scanning legal documents, i'd look to capture every smudge and wrinkle on the paper in the original scan.
as is, the document provided by the administration is a composite. a forgery. it was built by a graphics editor. this is obvious by the lack of anti-alias on some of the overlaid text.
my guess would be, since forging such a document would be tightly guarded, they only had a small group to choose from to perform the task... and a senior graphics artist / document forger was not among them
Well, good luck with that.