When the file system doesn't normalize names, then wouldn't the problem be worse? That is, wouldn't different tools be built with different normalizations (or n

When the file system doesn't normalize names, then wouldn't the problem be worse? That is, wouldn't different tools be built with different normalizations (or none at all)? Because that's my experience from Unix-based systems where some programs generate Latin-1 filenames and others UTF-8 names. And that doesn't even touch normalizations. What would your tool-not-policy approach be?