[xacml-comment] C003 and matching in targets and conditions

It's suddenly dawned on me that the signature of the match functions
is supposed to differ between targets and conditions. In a condition
it's (primitive, primitive) and in a target it's (primitive, 
bag<primitive>).
Is this intentional? It seems like a mistake to me. It'd be much simpler
for everyone if the signature wasn't dependent upon the context...

John