.......bureaucrats in Wash DC. They write them unreasonable, and it's job security for the re-writing required. Hardship upon businesses or people is not a consideration.
And it's probably a set of regulations off another shelf that "prescribes" the method of transferring responsibility from one branch/agency of government to another, and from another shelf that addresses "cost containment". All are probably written so that it would take a group of attorneys and accountants weeks to decipher. In the meantime, the bureaucrats running the show methodically follow their printed check lists. And garner their 'outstanding' performance reviews for attention to the job.

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