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There are a lot of organizations that require combs for compliance reasons. For example there are quite a few government organizations that require that the electronic form exactly match a pre-existing paper based form (the so-called light test). If the old paper-based form has a comb, then so must the electronic version.
Also forms may be used for both print-and-fill as well as electronic entry (with the same form)
If you don't like the combs, just don't use 'em.
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