No, it's a lot more than that. It is the result of a lot of thought by a lot of people including both ATC and highly experienced operations types with backgrounds including light plane instructors, corporate and charter pilots, and commercial air transport pilots. The NTSB and courts generally look on it as the bible on how one is supposed to operate, and deviations from its recommendations are generally considered inappropriate conduct unless you have a really good safety reason for doing it otherwise. So, while it only "suggests" or "recommends", it's more like when your Dad says, "I suggest you get [this] done before bed tonight" than "Hey, here's an idea for you to consider."