One phenomena of recent times is the giant legislative bill. That's true of the reconciliation bill passed annually, but also of others.
I think what's going on is the filibuster. It raises the difficulty of passing laws, so the laws which can and must pass get stuffed with measures. As long as someone, Congressional or lobbyist, has the ear of a person who's involved in the writing of the bill, there's a good chance to get your issue addressed. That cuts out the back and forth we might expect from committee hearings, which can expose difficulties and at least gives the agency which has to administer the bill some additional background and understanding of what's going on.
Here's a related tweet.