Not confusing if it is taken in context. The entire paragraph 9.1.3.D.8.b is dealing with air dams. It discusses the restrictions on sizing, and in so doing breaks bumpers into two categories. The paragraph you refer to is describing the definition of an "integrated bumper assembly", and offers that such a bumper is one that has a cover over the actual energy absorbing mechanism, and that the cover COULD be mounted if the underlying parts were not installed. It's just an aid to differentiating such a bumper from a old school standard bumper, that has a chrome (usually) bar mounted on the actual shocks and without the shocks and such, the bumper part would be lying on the ground. The allowable airdam sizing differs based on the category of bumper, hence the need to define them.
So, it's not, in any way, suggesting that bumpers or any component of a bumper is removable.
Dan types faster....