How does the state identify the unknown citizen in the poem's subtitle?

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Despite the fact that this man went to such great lengths to be a model citizen, doing everything just as he was asked and expected to do by his government, his employer, his family, and so forth, the letters and numbers by which he is identified show that all of his efforts mean little (or nothing) now that he is gone.  He was not known, at least not by his government, in any sort of personal capacity at all. He is identified not by his compliance, work ethic, goodwill, or popularity, but, by a series of letters and numbers that reminds me of our social security numbers: quite possibly the most impersonal way to acknowledge one's individuality. The questions, "Was he free?" and "Was he happy?" are deemed absurd by the speaker, who does not seem to realize that these are actually...

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