VPS control is a much bigger pandora's box to open than VPN control because there are way more VPS providers than VPN providers and there are constantly new ones popping up, plus there are millions of uses for a VPS which are wholly unrelated to VPNs.
How exactly would the UK Government enforce a law to "identify all VPN users just in case they're British ones trying to run a VPN server abroad" on tens of thousands of VPS providers worldwide whose business is just proving open-ended server infrastructure to anybody anywhere for any technological use?