It's not a randomly assigned quest. :) You have to go to a bureaucratic hall and wait around on the bureaucrocs to get the Card-Carrying Qualifications. I think the only requirements are to be level 3 and have a few currants.
Step One: Go to Bureaucratic Hall of your choice and obtain Card-Carrying Qualifications.
Step Two: Learn BA1
Step Three: Go to Bureaucratic Hall of your choice and obtain Your Papers!
Step Four: ???? Profit! (AKA Ride the Subway and Buy a House!)
But it can be a fun/interesting experience to go through the actual process for a new player.
So if you want to experience the process as the first players did, then go through the steps I outlined. If you just want a fast way to papers for a house and the subway, then buy them off the auction. Though I'm surprised you can use them without learning BA1. That seems a flaw.