StudentIdentificationCode.AssigningEducationOrganizationCode being a 'Required' field

TEA reported the following:

SEOA.StudentIdentificationCode.AssigningOrganizationIdentificationCode is required whereas

StaffIdentificationCode.AssigningOrganizationIdentificationCode is optional.  Why is it required in Student not in Staff?

The Alliance's response to how the standard must have evolved from version 1.0 is: 

1. In Data Standard 1.0, the ‘AssigningOrganizationIdentificationCode’ was optional both for the StudentIdentificationCode and for the StaffIdentificationCode -  https://github.com/Ed-Fi-Alliance/Ed-Fi-Standard/blob/master/v1.0/Schemas/Ed-Fi-Core.xsd
2. Our best guess is, at some point in an early SEA implementation, there were students with multiple enrollments in different districts, so the key was not sufficiently unique and assigningOrganization was added. This StudentIdentificationCode element used to be on Student, so that uniqueness would be needed.
3. However, when the ‘StudentIdentificationCode’ was moved to StudentEducationOrganizationAssociation, that uniqueness was no longer needed, but the model was left as is. In other words, the uniqueness based on ‘AssigningOrganizationIdentificationCode’ on StudentIdentificationCode is not needed but Ed-Fi prefers to leave it that way for now. 
4. So, the ‘AssigningOrganizationIdentificationCode’ being optional seems to be the right representation for the StaffIdentificationCode.  

Needed changes to the model:

1.  SEOA.StudentIdentificationCode.AssigningOrganizationIdentificationCode should be optional

2.  Clear guidance on how to use the AssigningOrganizationIdentificationCode and SEAIdentificationSystem is needed.  The sample dataset is confusing as it has more or less the same values for both of the fields.