Isn't it basically the same requirement as Apple enforces for iOS? If you want to build an iOS app which other users can install, you must register (and pay).

It's a step of questionable utility, and I suspect it comes from requirements of (not exactly freedom-loving) governments of Brazil, Malaysia, and Singapore, where the demand for registration will be enforced first. Maybe it will even remain geographically limited.

The article is very light on details. Crucially, it lacks any links to actual Google documents.