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@JonoMarshall
We're not writing the rules, just abiding by them, so you should probably ask Alej over on LOBP. As far as I understand it, the problem is any unnecessary protrusions from your bike. Axles were raised as an issue in the NA ruleset a few months back (?) after a nasty injury (a split shin and gouged bone from an axle).
I'm not certain there's a legitimate reason for having long axles, hence the addition to the rules (I guess). Nuts on the inside of a frame makes sense and is safe...
A few mm of axle doesn't sound like a problem to me, but it'd be hard to put that as a rule and it might not get properly enforced? Hence, the "flush with nut" wording and zero tolerance in NA?