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Don't they have to?

In the US, there's a law that says all places that serve food and aren't on a public street (e.g. a food truck), have to have a public toilet.

At least in my jurisdiction, gas station don't have public toilets because they want to---they have it because since they serve reheated hot dogs, they are required to have a toilet.

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Same thing in Russia. It doesn't always work well, but in most cases it does. As for mass public events - usually there are free street portable toilets provided as well. In most office buildings there are free toilets as well, and in all shopping malls, of course. Cinemas, theatres, medical institutions... All of those are publicly accessible without any questions asked.

To be honest, I can name only 2 places where the toilets are paid in Russia - train and some bus stations and there are paid toilets near metro stations in Moscow.

in germany you're required to have a toiled as well, but it doesnt have to be truly public. they're almost always limited to customers.

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