That is how European Union directives and regulations are written, as it happens. The 'recitals' outline the general aims of the legislation, acting as a sort of preamble.

> The recitals are legally non-binding. However, the recitals can be relevant. Courts often use the recitals to interpret a particular – legally binding – provision of EU legislation, especially if multiple interpretations of a certain provision are possible.

From https://eulawanalysis.blogspot.com/p/how-to-read-eu-legislat...