It CAN'T be that they are knowingly breaking the law surely.#
It MUST be that as statements have become more and more wooly schools have got used to the idea that they can make it up, and interpret '25 hours exclusively for x' as 'when class teacher or school feel it is necessary'.
The must, in their heads, add to the 'exclusively for x' another line 'if we think x needs it'.
This HAS to be what is going on!!!!