Like most laws, by former trial lawyers now in the legislature…
Legislators haven’t authored laws in decades.
The majority of the bill was written by Senator Creighton and his legislative staff. He is a licensed lawyer but he’s a career in house real estate/construction lawyer and mostly does his own real estate/development type stuff when he isn’t being a politician. He has no expertise in sports or higher education law or leadership.
I could give you a play by play of how the NIL bill came to fruition. The Cliff’s Notes version mostly covers it though: the Senator, Senate Committee on Higher Ed, and Legislative Council decided not to seriously consult lawyers or athletics/university administrators with knowledge and understanding of the implications of the bill. Generally speaking Senator Creighton’s staff assembled provisions of other states’ NIL laws that they liked and called it a day. There were several bills introduced but Creighton made it a pet project and as a member of the Higher Ed Committee pushed it hard. The state universities through their ADs and government relations staff did a ton of work to try and make changes to the draft bill, but their requests were largely ignored and they had to pick a few key battles fight in order to make the legislation palatable (i.e. there was a long and silly focus on what industries/products/services couldn’t participate in NIL. For example, in the end they allowed gambling but not “casino gambling” and firearms but not “firearms the athlete can’t legally purchase.”). The senate’s goal was simply to pass something, and fast. It was honestly a very busy session, and as the last one before the 2022 elections the leadership had a lot of re-election priorities that sucked up their bandwidth.
It’s not an awful bill, given the way the process unfolded. But it’s obviously far from ideal.