I think this highlights the EU vs US perspective on Government nicely
In the EU you tend to trust your bureaucrats to make a "Fair and Just" application of the law
In the US we tend to expect our bureaucrats to be vindictive, corrupt, petty, and generally impose fines and penalties not based on the law but based on their personal feelings about the target of their "legal action"
Thus such open ended wording like you posted being classified as a "rule" scares the shit out of most Americans
In the EU you tend to trust your bureaucrats to make a "Fair and Just" application of the law
In the US we tend to expect our bureaucrats to be vindictive, corrupt, petty, and generally impose fines and penalties not based on the law but based on their personal feelings about the target of their "legal action"
Thus such open ended wording like you posted being classified as a "rule" scares the shit out of most Americans