That doesn't mean regulators won't require it to ensure it's eventually enabled on all vehicles at a base level. I agree it won't technically be necessary, but the more cars that have it, the safer (or at least more efficient for traffic) it's likely to be.
How does it make it safer? A SAE Level 5 car has to work as the only car within a flotilla of manual driving cars and in situations where there is zero V2I infrastructure. It has to do this with utmost safety. How much safer would providing either of these make things? Instead, if there are problems, there are likely problems for manual drivers already... and that's a normal part of traffic engineering to solve those issues.