XSD question: can we describe Department outside of ElectionAdministration

[afsmythe]

Department is not presently designated as a ComplexType and its description is nested under ElectionAdministration.

Considering a scenario where a database is modeled after the specification should Department be described as a standalone ComplexType like so?

<xs:complexType name="Department" maxOccurs="unbounded">
        <xs:sequence>
           <xs:element name="ContactInformation" type="ContactInformation" minOccurs="0" />
           <xs:element name="ElectionOfficialPersonId" type="xs:IDREF" minOccurs="0" />
           <xs:element name="VoterService" minOccurs="0" maxOccurs="unbounded">

With ElectionAdministration.Department then described as:

<xs:element name="Department" type="Department" maxOccurs="unbounded">

[jdmgoogle]

I think this structure is more of a legacy issue than a conscious choice. Is there a particular motivation for making this change? I don't have an opinion one way or the other I'm just curious.