Regulations are infrequently written by those most affected. The people closest to the situation typically have to rely on others who are experts in procedures to speak for them. There is a limited allowance for difference in individual situations. Regulations can be used on people with disabilities to maintain and extend the power others hold over them. They can be used to justify practices that are against the best interests of a person with a disability.
Regulations are often very hard for people with disabilities to understand.
Procedures for insuring fairness can get complicated and take a very long time. Because regulations have to take account of the interests of several different groups, they can represent a compromise on what would be best for people with disabilities. They can represent what the regulators think they can get people to do rather than what they think is best. Regulations can be hard to change, even when people agree they don't work well. Money isn't necessarily attached to regulations.