There is truth to this. It was the case when I lived in Maryland and I saw it first hand. The state had a minimum maintenance cost to pass. In other words if that min was $200, and you spend that on repairs and can show the receipt, it doesn't matter if the emissions pass or not... hey you tried, good job.
So if you have a busted headlight that you'd have to fix anyway for say $250, and think your car may fail emissions... then wait to spend the $250 on the light so you can pass the inspection. This way you keep from spending the $250 on the light, AND whatever it would take to fix the emissions....
-rvb
Yep, it also opened the door to some of your less reputable shops to give customers a free pass so long as some cash is exchanged.