The situation was all very, very obvious.
Look, I spent many years writing rules and standards for getting the business of the USPS done ~ there was a "customer" I had created in my mind that I thought of constantly as I designed a rule or a form.
First of all, he was barely conscious, if at all. Secondly, he didn't want to do whatever it was that had to be done. My job was to pry his mind open for a brief millisecond, pour in some wisdom, and then hit the reset/restart button, get his money, and get him out the door.
I had a different model for the employees. There were, in fact, two models. One was an angry would-be shop steward with a bad case of the a$$ (an Army term from the Nam era). Typically Democrat, this guy would rather toss bundles of mail at a visitor than do his job.
The other was someone who wanted to stay out of trouble ~ all instructions to Postal employees had to be written to cover both types. Doing that briely and clearly was a difficult job, and only a bare handful of Postal rule makers ever succeeded in that effort.
Obviously there’s a serious need for a “Constitution for Dummies” handbook (among other similar types of handbooks for people without the ability to apply logic).