a lot of what is in them is tax breaks, special funding and payoffs
so most of each section is written by lobbyists or their lawyers
then dropped in by their owned congressman
the patriot act type stuff was written in advance to be ready for the false flag to drop
maybe years in advance
if you ever had a lawyer take a month to draw up a one page agreement or will
that gives you an idea about how long these lawyers have been working on a 4000 page bill