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(1) I suspect a hand picked group of Ivy League professors & interns (law).
(2) Actually, this Senate Bill was never intended to become law. It was a jumbled up mish-MASH of bargaining points expected to be combined with the House version in Conference Committee. But, in the rush to get this monstrosity passed, there was never a Conference Committee; therefore, never discussed by the House & Senate, with no Congressional "intent of Congress" and no "blue book" (which is like minutes taken at meetings of all conversations, etc.) Without the "intent" and "blue book", the regulation writers who tried to decipher this mess did the best they could with what they had to work with, which is why none of it makes a whole lot of sense.
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