or
the Committee of bureaucrats who created careers generating them, so they reflect the endless process by which they were generated (and will be endlessly updated and revised;
lawyers (or NAAs), so they will be made as incomprehensible as possible, with so many sub-clauses and qualifications that no one knows what they mean.
Here again, this old bureaucratic fundamental law:
"If they don't understand you, then confuse them even more "
And all becomes clear )))