Or 3, they are doing it this way because they are trying to set up a framework which makes their regulation more legally defensible, particularly with that supreme court case coming down the
gullet and all...
As Duke Wellington once said, they are trying to defend "an indefensible"
Since 2a can't be repealed straight up, .gov pussyfooting all around the issue so much that they have tangled themselves again and again in the endless string of lies and regulations. The argument that "we are not really infringing on 2a" has became an endless string of case laws, edicts and regulations. This web of lies will take forever to untangle in courts.
Attaching a "fleshlight" isn't a nuisance, with every ban on one front they expose something else. It gets challenged, more bans, so it goes on forever, until all this endless bullshit is replaced with either "shall not be infringed" or "slaves shall not posses weapons".