In Hong Kong the South China Morning Post reported on its front page that Indonesia's anti-riot forces have been ordered to shoot to cripple rather than kill in clashes with protestors.
The Indonesia anti riot forces have been forced to damage, but not kill protesters.
In this context, the references in the history to requiring an identical standard or precluding any changes for 1998 may have been based on the assumption that the outcome of any change would be an increase in the standard.