I'll read a couple of sections on understanding exhaustive definitions and non-exhaustive definitions. She actually has—I was surprised by this—a specific section on when a statute has the words “means” and “including” in it, so we'll start there.
She wrote:
Exhaustive definitions declare the complete meaning of the defined term and completely displace whatever meanings the defined term might otherwise bear in ordinary or technical usage. An exhaustive definition is generally introduced by the verb “means”. For example, in Part 2 of the Canada Transportation Act, “tariff means a schedule of fares, rates, charges and terms and conditions of carriage applicable to the provision of an air service and other incidental services”. This definition resembles the ordinary meaning of “tariff” in the context of air transportation. Nonetheless, the statutory definition displaces any understanding of the term based on dictionary definitions or linguistic intuition.
That's the exhaustive definition. She continued:
Non-exhaustive definitions do not purport to displace the meaning that the defined term would have in ordinary usage; they simply add to, subtract from or exemplify that meaning. Non-exhaustive definitions are generally introduced by “includes” or “does not include” (or “excludes”), as in the following examples:
sell includes agree to sell, or offer, advertise, keep....
Non-exhaustive definitions are used to expand or narrow the ordinary meaning of terms, to deal with borderline applications of terms or to illustrate their range—