The difficulty occurs when someone in any given organization who has influence within that organization says they need a better standard than they have. Remember, this is not altruistic. It has nothing to do with altruism at all. They're doing this because food is the next tobacco; we're just about to start getting sued over these things, and they're doing their absolute utmost to ensure that they don't get themselves caught in this situation, so they're getting advice from somebody within their organization, or outside it, that this standard is the good one and the one they have to go with. At the same time, somebody in another organization has made the case for something else.
We don't know how it came about, but we've ended up with this hodgepodge that is very difficult to meet.