Broad can actually be good, because it allows more ability for the government and the communities to define what that looks like on a nation-by-nation basis. Requiring too much consent can put too much strain on the communities, where they may not have the capacity to do so.
Therefore, when we think about how we create structures or funding mechanisms, or whatever the regulations may look like, we need things to be broad so that they can be figured out later on on a nation-by-nation basis.