The phrase that precedes the word “that” reads like the subject, not a modifier. The sentence may diagram either way but it sounds really really awkward when read out loud from a common sense point of view. Legalese is not for everyone - especially the common sense crowd. The casual observer would see this instantly - if they looked.
Bullshit, dude. Obviously you are a leftist shill trying to kick up dirt where none exists. And no the common sense approach is not to parse the sentence like a Clinton but to give it the obviously unintended meaning.