Addressing and clarifying all the different penalties is a good start, but until we have complete access behind the Referee Iron Curtain so we can all see how the sausage is made, it won't change anything.
You can make cross-checking as black and white as you want to, but if someone's telling the refs to manage games, or giving them permission to treat one game different from the next, it's not going to mean anything to anyone.
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