Not sure if this is new or not as it's been a while since I played. If you have a bill set to repeat until x items of apparel are made, it doesn't count any armour or clothing that are on racks. So for example, if I have a bill set up to make sure I have enough winter clothing for the colony, during the summer when this clothing is on racks, they will go into overdrive trying to make a new set for everyone as it believes I have 0 sets. The moment I swap them into this clothing they stop but then start making more summer clothing instead.