Because the issue is this: A "finding", in legal terms, is a specific, explicit statement with the supporting rationale behind it. You can make statements in

Because the issue is this: A "finding", in legal terms, is a specific, explicit statement with the supporting rationale behind it. You can make statements in a legal document, even a settlement, without classifying them as "findings" (that have specific legal ramifications). Indeed, the AG says in the documents that absolutely Tether did not always have backing. However, it doesn't address -issuance- without backing. So the attorney for Tether is doing as attorneys do, making a carefully crafted statement that will paint a specific impression to the world, whilst being entirely aware (and maintaining plausible deniability) that he is artfully weaving through several other "inconvenient truths".