> In addition to the advanced flow we’re building free, limited distribution accounts for students and hobbyists. This allows you to share apps with a small group (up to 20 devices) without needing to provide a government-issued ID or pay a registration fee.

i.e. Government-issued ID and fees are needed for more than 20 devices, e,g, every app on F-Droid

The trouble is, the accounts aren't meant to be anonymous. Pseudonymous at best, depending also on the country (a lot of places require government ID before you can assign a phone number, or have a central government querying system for mapping IP addresses and timestamp to the name and address of the subscriber that used it at the time). It's not like they let you create infinite Google accounts without supplying an infinite amount of fresh phone numbers or IP addresses. You also agree to the general Google privacy policy, which allows them to do anything for any purpose last I checked (a few years ago) unless you're a business customer (but then you've got a payment method in use, and they don't accept cash in the mail), such as fingerprinting as part of reCaptcha

Note that the OP is about side loading, i.e. installing apps from non-Play Store sources and thereby circumventing developer verification.