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As a long ago mentor often insisted, "if you are going to read at all, read it all!"

The law making process forces stuff like this. In the heat of battle, on the floor and in smoke filled rooms, sometimes opponents can be "bought" by adding or deleting some onerous provisions of a bill, and language is added or deleted accordingly. The proponents aren't willing to weaken their language which might then be misinterpreted by courts, so they stick in exceptions, except as provided by law! The result is sausage that nobody really likes but gets votes to pass. What else really matters?