Maybe I'm cynical, but in committee drafting, sometimes the confusion comes because the committee doesn't actually agree. The language gets agreed upon because some members think in means x and some think it means y--and we have to guess. (The same thing is sometimes true in interpreting laws that come out of legislative bodies.) I also think provisions get written with a very specific incident in mind, and that not enough thought goes in to what the language means outside of the narrow confines of why it was written.
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