IMHO, you are trying to find a logic that simply isn't there. Alvarado2510 is copying from copyrighted sources and he focuses on administrative borders, he knows he should not do that, so he first maps objects named in the law that establish the borders he intends to map, then follows assigns the relation memberships. he does have some trouble reading and interpreting, as you can see in this other note:
https://osm.org/note/2284962