head to head
Neither is simply harder - they are hard in different places. Papers, Please demands more variance; Portal 2 demands more optimization.

Optimization · Pure Optimization
Dystopian border-checkpoint sim where stamping passports fast enough feeds your family.

Optimization · Pure Optimization
A first-person puzzle game where seeing the solution is the whole skill.
Papers, Please leans Optimization (Pure Optimization); Portal 2 leans Optimization (Pure Optimization).
Papers, Please leans a little harder on execution, though the gap is small.
Papers, Please
Document-checking speed directly pays the rent
Portal 2
Portal placement requires some precision but timing is lenient.
Same score on reads - which means the number cannot separate them. The difference is in what each one asks of you.
Papers, Please
Entrants are generated, not adaptive opponents
Portal 2
No opponent; puzzles are static.
Papers, Please leans clearly harder on variance.
Papers, Please
Random entrant documents and scripted-event surprises
Portal 2
Puzzles are deterministic with no randomness.
Portal 2 leans clearly harder on optimization.
Papers, Please
Internalizing rulebooks and inspection workflow efficiency
Portal 2
Solving the puzzle's logic IS the entire game.
A matching score does not mean a matching test. Two games can both sit at 10 on execution and demand completely different things of you - which is why the reasoning above matters more than the number beside it.