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You can easily make VPN's effectively illegal. You could make them require age verification for example, or you could ban commercial VPN's and only allow self-hosted ones. They could also do what Utah did and make it so that you effectively can't access any websites with a VPN, because the site would be liable for any VPN users accessing the site.
The idea that the government can't ban VPN's is giving us a false sense of security. They can at the very least completely undermine them.