What do you get when you cross a Mafioso with an attorney? You get an offer you can’t understand.
A friend of mine (a lawyer) always liked the line from (I think) The Godfather: "A lawyer with a briefcase can do more damage than six guys with machine guns."
Congress is, for the most part, made up of lawyers, which explains a lot as far as to why laws are laden with so much boilerplate and gobbledygook. The trick with any piece of legislation that comes out of Washington (or your state capital, or county board, or city or town council) is to effectively disguise what the true intent of the law or regulation is. If you knew for a fact what the true intention of the legislaton or regulation was, you’d likely be marching up Capitol Hill with a torch and a pitchfork. So the idea behind all the "wherefore"s and "pursuant to"s is self-preservation. The members of Congress don’t want us to figure out what they’re up to until they’re safely out of Congress, enjoying the ill-gotten gains at the expense of the taxpayers.
Notice, I’m not saying who’s more guilty of this, the red team or the blue team. Both sides carry out this activity, often with the assistance of the other team. And, I also want to point out that not all lawyers do this: my sister-in-law, who’s an attorney, doesn’t do this, despite the fact that she works for the SEC.