I think that's it. Intentionally ambiguous. Rush it through. Get it passed. Mandatory if you want school loans. Then after the ranks of GIVE volunteers swell, then iron out the 'details', citing individual instances such as that one person giving religious instruction, and use that to set new precedence for how to clarify the ambiguities. That's the dark version of events that I hope don't come to pass.
Why should someone who wants a student loan have to be forced to volunteer, especially since they will have to pay the loan back with interest? The government isn't the only entity that gives student loans. Besides, the only ones who are forced to take out student loans are middle class folks who usually don't qualify for any federal or state grants. This is discriminatory since it favors the poor and the rich. Unless of course, they include anyone who gets grants and/or loans.