It's pretty much impossible to write a statute to account for every single possible situation and interpretation. In one county where I live we recently had a huge kerfluffle over the county code section about a ferry and ferry fares and what kinds of things the farebox can be spent on. At one point there were three different rewrites of the same statute, all purported to accomplish the same goal, and all markedly different depending on which motivated entity wrote the proposal. At any rate someone still would have needed to interpret the statute.