It is that simple. But, You are partially correct, It also polices the mechanic Because if the first mechanic fails it legitimately and the customer goes somewhere else and the second mechanic is a little casual and passes it , then the first one has failed it into he system and this can generate an inspection from the Gestapo who may check the vehicle but if the necessary repairs have been carried out then there is no problem however if someone hasn't done their job properly then stuff might hit the fan.
There is no law to say that you have to go back to the original inspection station for the second inspection. If you are not happy with the mechanic (because you may be smarter than he or because you may think he is ripping you off and trying to generate work ) you can always go somewhere else, your choice . Obviously the mechanic in this situation is not doing this because he suggested going to a brake specialist.
It is very unusual for a vehicle to fail a brake test, I have had two fail in my workshop in 20 years one being a 1940 something Willys Jeep ( if that gives an idea of how bad they have to be ).A pass on a 4wd is 39% average deceleration.
The OP said he hadn't noticed any issues with his 5 year old car
and that is why I suggested a second opinion.
I can say that some brakes are a bit lazy when cold after the car has been sitting in the parking lot all day and you just drive up the road with your foot on the brake and warm them up a bit and then do the test.
Also pad wear has nothing to do with performance (they just fade quicker when the pads are low). A brake test is performed at 30 kmh even pads that are metal on metal will pull up a pass. The Brake tester is the biggest waste of money in the workshop, up to 2 grand for a box with a printer in it that does not tell any worthy mechanic anything that he didn't already know. It doesn't even make you test "that "car as we have all heard of the bloke doing the test in the workshop or in some other car when then hotrod in question is stuck on blocks !.
Why wouldn't you get a second opinion , the first mechanic doesn't want to fix it. The cheapest way to do this is get another inspection and who knows it might even pass.
Also it is no skin off the vehicle owners nose if the car has been passed and then you get a spot inspection as it is the inspection station that is being audited not you. If there are defects still to be found then whoever passed the vehicle has to rectify the problems at their expense and most likely also cop a fine.
At the end of the day no one takes free advice so cough up another $36.40
and I'll call it quits.

