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If you read the Mueller report as a document that was never intended to see the light of day in it's entirety and instead was a document intended to be leaked out piece meal it makes perfect sense. The conclusions had to be included because they had nothing.
But the conclusions were never suppose to be seen. It's a document written in such a way that those that have it in their possession can quote from it and present a totally different view than what the document concludes only if others don't have the document.
It's really an interesting look at how DC uses cover and shadows to craft their narratives.
