IMO this is a classic case of loss aversion. Enforcers of law are put in a position to make subjective decisions that impact them personally. They don’t want to make a decision. They want someone else to make a decision. Decision stew until they can be disassociated with any person or group. This takes time. Usually the decision is tempered to absolve all parties and thus be convoluted and misinterpreted. Rinse and repeat.