Yes. Even within this game, most people have a finite attention span when it comes to various details and it makes it quite difficult to stir up support for or opposition against any legislation that many cannot be bothered to read. While this may be a reflection more so upon those who do not read the legislation, it is something that all of us have been guilty of at one point or another.
It's a two-way street, though. As GM, I've had to dig through quite a bit of past legislation recently. There have been plenty of pieces of legislation passed throughout the years that failed to utilize the basic components of what good legislation entails, in my opinion. Enforcement mechanisms is a key factor. Documented expenditures is another. I just clicked 'Random Page' through the Wiki to try to find two examples, a
good one and a
bad one. Still subjective, I guess, but the point is that "user-friendliness" can come in more than one form.