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Universities using hotels as dorms

Can anyone tell me what was the impetus for the change in the 2006 IBC that separated hotels (R-1) and apartment houses (R-2), introducing the concept of transient vs. nontransient, when they were previously in the same Group R, Division 1 in the 1997 UBC?

Also, which one is considered "less hazardous" when contemplating a change in occupancy from one to the other?
I believe R-2 is less hazardous, and the differences are based on familiarity of the occupants with the building.
 
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