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I can't say this for sure with this proposed law, but many times proposed laws will include some language that the drafter of the law knows probably won't fly, but it gives those who oppose it something to say they managed to strip out of the law before it was passed and still look like they were fighting for their constituents. It's basic contract negotiation. Ask for everything even if you know you won't get it all and let the other side feel like they won on at least one or two points.