@neil That's exactly my experience with many of the organisations I've been asked to assess/advise.

It's not confusion. It's wilful ignorance. I know of at least one big name consultancy with an entire department dedicated to providing specific guidance on how to subvert the legislation by carefully and deliberately misinterpreting the wording.

I do enjoy seeing that defence torn to shreds in my other role, sitting on a couple of penalty/enforcement advisory panels :-)