I believe the intention was to avoid an overly prescriptive definition at the very first stage, so that the preliminary investigation could then gain greater clarity in terms of whether it indeed fit the more specific legal definitions that counsel has indicated.
The concern is if there's a case where it's unclear if it meets the specific definition, that the bill should err on the side of moving those complaints through to the first stage of investigation as opposed to dismissing them and excluding them from the process, based on limited information at that initial, pre-investigation stage.
I believe that's the intention.