If a country wants to put their records on the blockchain you don't want to tell them "sure, go make an account on cryptsy."
No, nobody needs to buy Factoids to use Factom. To use Factom, you need entry credits. You can convert Factoids to Entry credits, but you can also buy entry credits directly.
So governments don't need to touch Factoids, but they'll still have to be destroyed to create entry credits.
Heh. I suck at explaining stuff like this. Hope I made sense !