Part of it, I think, is that a random person apologizing on behalf of an entire country is rather pointless. It doesn't benefit that other country at all (in a personal sense a genuine apology might provide reassurance that the apologizer doesn't intend to repeat some offense, but a person apologizing for an entire country, that they don't control, can make no such garuntee, same as apologizing on behalf of an unrepentant stranger would be pointless). The only thing it really does is make the person apologizing feel slightly better about what is going on.
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