Yeah, isn't it a legal requirement subject to penalties, as you say? Then surely it's fair to measure success of the program on those terms as well -- i.e., is it being used as a currency for daily life? The answer is seemingly not (for technical, social, and speculation reasons), meaning it's fair to comment that this part of the project seems to be a failure. OP can't carve off criticisms they don't like or _personally_ care about.
That the most possible answer is that...
Someone from the government tweeted or said that they had to do it on a tv interview, otherwise they would officially face fines or perhaps closures.