biblatex: If comma-separated organizational unit names as publisher are braced individually, most disappear — why?

Suppose I, using biblatex, want to cite a publication of a government office and include the names of its parent agencies as the publisher, as in, e.g., APA style. Suppose these agency names include the word "and". Per the biblatex manual, §2.3.4, if a publisher’s name contains the word "and", either the "and" or the whole name must be braced to escape the "and" from being interpreted as a list separator. Either bracing the "and"s or (double-)bracing the whole publisher values does work. However, if I brace the names of the individual organizational units within the publisher field, the output seems strange — the first organizational unit is shown as the publisher, but the succeeding ones are omitted.

The following example document demonstrates by creating a reference list in which a publisher field is given with bracing of the "and"s, with bracing of the whole value, and with bracing of the names of the individual organizational units. This is demonstrated with both the book and the misc entry types (the latter using organization rather than publisher).

documentclass{article}

usepackage{biblatex}

begin{filecontents}[overwrite]{jobname.bib}
@book{book1,
    title={Book 1},
    author={A.},
    date={2013},
    publisher={Republic of Foo {and} Bar, Ministry of Education {and} Science, Office for Food {and} Agriculture},
}
@book{book2,
    title={Book 2},
    author={A.},
    date={2013},
    publisher={{Republic of Foo and Bar, Ministry of Education and Science, Office for Food and Agriculture}},
}
@book{book3,
    title={Book 3},
    author={A.},
    date={2013},
    publisher={{Republic of Foo and Bar}, {Ministry of Education and Science}, {Office for Food and Agriculture}},
}
@misc{misc1,
    title={Misc 1},
    author={A.},
    date={2013},
    organization={Republic of Foo {and} Bar, Ministry of Education {and} Science, Office for Food {and} Agriculture},
}
@misc{misc2,
    title={Misc 2},
    author={A.},
    date={2013},
    organization={{Republic of Foo and Bar, Ministry of Education and Science, Office for Food and Agriculture}},
}
@misc{misc3,
    title={Misc 3},
    author={A.},
    date={2013},
    organization={{Republic of Foo and Bar}, {Ministry of Education and Science}, {Office for Food and Agriculture}},
}
end{filecontents}
addbibresource{jobname.bib}

begin{document}

nocite{*}
printbibliography[]

end{document}

Note that the publisher (and organization) fields are given in the following forms:

1. publisher={A {and} B, C {and} D, E {and} F},
2. publisher={{A and B, C and D, E and F}}, and
3. publisher={{A and B}, {C and D}, {E and F}}.

This is the result (formatted as well as a code block allows):

References

[1] A. Book 1. Republic of Foo and Bar, Ministry of Education and Science,
    Office for Food and Agriculture, 2013.
[2] A. Book 2. Republic of Foo and Bar, Ministry of Education and Science,
    Office for Food and Agriculture, 2013.
[3] A. Book 3. Republic of Foo and Bar, 2013.
[4] A. Misc 1. Republic of Foo and Bar, Ministry of Education and Science,
    Office for Food and Agriculture, 2013.
[5] A. Misc 2. Republic of Foo and Bar, Ministry of Education and Science,
    Office for Food and Agriculture, 2013.
[6] A. Misc 3. Republic of Foo and Bar, 2013

Note that, where the form publisher={{A and B}, {C and D}, {E and F}} was used, everything after and including the first comma disappeared. My questions are:

1. Why? What does publisher={{A}, {B}, {C}} mean to biblatex that I’m not realizing?
2. Where should I have found that in the biblatex manual?