http://www.ecfr.gov/cgi-bin/text-idx?SID=019f28cb2b081515d27...
In 1994 dollars, that's about $96k.
They will have job duties broken down for the lowest paying position, with a 5% other work, but on the job they will be doing work of a better paid position, with that 5% other work constituting 90% of what they are doing.
Imagine if the only punishment for theft was having to pay back 200% of what you stole. As long as you don't get caught half the time, it is profitable to steal. That would be both something which is illegal and also a loop hole in the law.
https://en.wikipedia.org/wiki/Loophole :
"In a loophole, a law addressing a certain issue exists, but the law can be legally circumvented due to a technical defect in the said law"