Bills are not hard to read because they are complex, but because they are poorly written. They generally contain lots of comma-separated lists in sentences, as

Bills are not hard to read because they are complex, but because they are poorly written. They generally contain lots of comma-separated lists in sentences, as well as nested conditional clauses. If they were written in a structured format instead of in prose (think nested bullet points, conditional blocks like a programming language, etc.) then they'd be _significantly_ easier to understand.