Here's the problem with that contradictory code. If a lockout was required to be on breaker boxes to be "safe" when the cover was removed at any time, they would come factory installed and a seller couldn't sell the home without 1 installed and an inspector would check if a device existed. All the years i worjed in factorys, never did i see such a device when the panel was removed. The device was put on afterwards with an orange or red flag indicating a safety or hazardous area.