Bills are not hard to read. Especially the closer to local government you get. The problem is that bills are worth the paper they're written on until courts affirm what the language means in the context of the legal system.
Bills are not hard to read because they are complex, but because they are poorly written. They generally contain lots of comma-separated lists in sentences, as well as nested conditional clauses.
If they were written in a structured format instead of in prose (think nested bullet points, conditional blocks like a programming language, etc.) then they'd be _significantly_ easier to understand.
If they were written in a structured format instead of in prose (think nested bullet points, conditional blocks like a programming language, etc.) then they'd be _significantly_ easier to understand.