〜と考えている at the end of a sentence


An example sentence from NHK Easy
([source](https://www3.nhk.or.jp/news/easy/k10013857201000/k10013857201000.html))

> 政府は、日本に住む人みんなにマイナンバーカードを作って、健康保険証の登録をしてもらいたい **と考えています** 。

Reading NHK Easy, I frequently see sentences ending in 〜と考えています when it's
clear that it's not meant to say "Somebody is thinking about ~". I figure this
is a form of hedging, like how you're not supposed to say "たけしさんはケーキがほしいです"
but instead "たけしさんはケーキをほしがっています".

If my assumption is correct, what is the significance of using 考える for this
purpose? How is it different from using がる or と言う or some other way of
reporting?




From an English perspective, ～たいと考えています may seem redundant, but this is
perfectly natural in Japanese. ～たいです or ～欲しいです are actually [unrefined
sentence endings](https://japanese.stackexchange.com/a/68969/5010), and they
are usually avoided in proper news articles and such. Instead of です, people
very commonly add と思っています, と言っています or と考えています after たい/欲しい.

For example, something like 私は車が欲しいです is polite and natural enough in
conversations and not-so-formal business exchanges, but in very formal
writings, you should say 私は車が欲しいと思っています or 私は車が欲しいと考えております, etc. Likewise, you
will almost never hear a sentence like 政府は登録をしてもらいたいです in news broadcast.

When you translate this into English, you can just use "want".

> 政府は、日本に住む人みんなにマイナンバーカードを作って、健康保険証の登録をしてもらいたいと考えています。  
>  The government wants everyone living in Japan to create a My Number card
> and register for the health insurance function.

(Just to be sure, the subject of 考えています is 政府 at the beginning of the
sentence, and the 政府 can safely "say" or "think" something just as [White
House can](https://www.grammarphobia.com/blog/2013/09/personification.html).)

