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This matches the minimum API level required by the Play Store for both new apps and app updates, so this isn't an aggressive requirement. A significant example of these privacy/security improvements is API 28+ using a per-app-per-profile SELinux MLS level instead of per-profile.
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That means apps targeting API 28+ each run in a unique security domain and cannot directly communicate or share data with each other. They can only do it via intents. Apps can no longer do things like making their files world-readable/world-writable to give other apps access.
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Most of the privacy and security improvements in major releases of AOSP are applied globally. Some of these changes break compatibility and need to be limited to newer API levels. Easy to see how preventing direct sharing/communication between apps was a break in compatibility.
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That's similar to the official deprecation of the Storage permissions in Android 10 to force finer-grained requests including case-by-case consent via users choosing a file/directory via the system file manager (Storage Access Framework) including support for app-based providers.
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There was too much backlash from developers and the media / users ended up amplifying that, so enforcing it was delayed by a year until Android 11 and they aren't going to force it on legacy apps yet. GrapheneOS could enable it for everything, but it would be a usability issue.
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