Increasingly connected vehicles offer drivers benefits related to safety, navigation, and maintenance. They also provide policymakers new opportunities to trace and modify behavior using data insights. For such efforts to be effective, policymakers need access to policy instruments. These instruments must also be adopted by regulated entities such as technology providers, vehicle manufacturers, and drivers. Reuse and scaling across jurisdictional boundaries are crucial for the efficient development, adoption, and use of these digital tools. However, establishing digital tools that scale across diverse contexts requires navigating trade-offs between generalization to meet global demands and specialization to provide desired functionality. Using digital trace data and interviews, we conducted a longitudinal study of the development of the Mobility Data Specification standard for, freefloating e-scooters, over three years. We identified four key instrument tensions related to privacy, scope, richness, and the pace of evolution. We detail the nature of these tensions, analyze how they were mitigated, and suggest implications for the development of digital regulatory tools that span jurisdictional boundaries.