rule modules change in latest IRML draft?

re: IRML rule modules
A quick question on IRML specs: In previous IRML docs you say that "up
to 3 rule modules" will have to be triggered per transaction - i.e.
those for 1. client, 2.access provider, and 3.content provider.   In the
latest draft you eliminate the access-provider from this equation and
state only that "up to 2" willl have to be triggered. Why this change of
philosophy re access providers and their role in the end-to-end
transaction?

Thanks,
Ben.