That's actually how they want you to feel! So your goal has to be to both decode and understand what all their terminology means. Some of that is straightforward--as you read, try to rephrase what they say into terms you understand. For example, when they say, "The economics of the city's plan fail to take into account the prior adverse outcomes," you turn that into "the city's plan doesn't include past failures." Simplify everything into terms you understand while at the same time not changing the meaning.
The other part is to learn how certain words they use have "loaded" meanings. For example, words like "only," "unless," "sufficient," "cause," and so on are used by them to convey very specific logical concepts (and there are many other similar words). Once you lock in to when they use those terms, it becomes much easier to understand what they are up to.
When you combine to the two pieces above, it all starts to make a lot more sense and feel a lot less like you are reading an encyclopedia
Please let me know if that helps. Thanks!