Slightly longer answer... policies get patched onto policies which in turn are latched onto other policies, in the vain hope that most folks are pleased, yet previous stuff isn't disturbed.

In programming, we call it Cruft - basically crap that you can't get rid of lest people complain (or something breaks), yet people are complaining about it now (and there's breakage).

The only real cure is to run through and re-work 'em all... but I don't think that'll happen until it starts affecting the bottom line. It also tends to disrupt.

/P