Well, as I implied, if they were constanly having to spend time dealing with 'obviously low' customer readings, and also the complaints which resulted from excessive bills as a result of high readings, they surely would have come to realise that was a problem.
One would think that they would be pretty daft if they had not had some input from meter readers - but the text that they have ended up with suggests that perhaps they were daft!
However, I think the problem with such instructions being written, or checked, by people who are reading meters all the time is that they may be unaware of the 'subconscious common sense' which they are applying when reading meters. As I said/implied before, the crucial thing about the development of 'instructions' of any sort is to 'field test' them on the target population (i.e. in this case, members of the general public with no experience of reading meters) - since that will reveal what problems exist 'in practice'.
Over the years, I've had a fair bit of involvement with the development of 'instructions' and questionnaires etc., and it has very often been the case that, when field testing has been undertaken, Joe Public has shown himself capable of misinterpreting/ misunderstanding things in a way that those who produced the material hadn't even considered!
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