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Yes, it is not
technically mandated on purpose (as is it wise not too), but instead..it is becoming more difficult NOT to have the ID (for various reasons); so it makes practical sense to just get the ID and call it a day. The Japanese Government has more concerns right now than worrying about getting their citizen's personal information or "Big Brother watching activity" etc., so this ID is more of a
practical necessity than imposing control etc.
But on the topic, there is a difference between "not mandated" and "it is suggested" meaning it is implied that you do. It depending on what side of the globe and culture you are in and its interpretations. "Mandated" is a word that gives no options as most (especially in the U.S.) don't like. But when it comes to interactions or transactions
that cannot be done without having it..it really becomes an "unspoken" mandate. No need to make a law etc.
Again, it is really not a big deal, but it still is what it is..