Because she says sometimes in her experience the Russians have taken language, even non-binding preamble language like in the START treaty, and used it to justify an argument or a point of view.
It has proposed an amendment to the pact that would replace the legally bindinglanguage with a provision that retailers that failed to live up to the standards be publicly expelled from the program.
White House aides said they may include non-binding "sense of the Senate" language in the budget to appease some Democrats, which would signal intent to use any further spending for education.
But the compromise language waters down earlier congressional demands that would have required a set of binding benchmarks for progress as a condition for continued funding.