I think part of the trouble is with the legislation itself.
The State government said they were going to come down hard on any dog mis-identified as SBT when in fact it was something that met their visual criteria for APBT or APBT x. So it may be that some people decided to be honest about their dog being an APBT ie restricted breed in the hope that they could keep it but didn't understand the different requirements and fees for keeping a restricted breed. I have read a lot of complaints to this effect. However - it's hard to prove a dog is an APBT. The law sort of changed that to say that the ranger could just declare it and then it's up to the owners to fight the VCAT.
So a grumpy ranger could declare a chihuahua x to be a APBTx and the dog would be locked up and have to go through VCAT. Years later... the owners might get their dog back.