Clause 15(c) states: 15.(c) respecting any matter relating to complaints in respect of tolls, fees and other charges, including the procedures [...]
You're telling me you don't intend to use it, but if you establish a complaints procedure, people will file complaints. You'll have to identify people or organizations that will handle those complaints. Clause 15, which concerns operation and use, follows immediately after the section on maintenance and repair. People will no doubt think it's now possible to complain about the quality and condition of bridges, and they'll do it. Do you want a complaints service to be officially established?