USA Swimming Rules : Cannot have 2 swim caps??

Last year USA Swimming past a rule in paragragh 102.9.1 A it states "Swimwear shall include only a swimsuit, cap and goggles." I use a poly cap on my head then put my goggles on then place a silicon cap over it for competition. It helps hold the goggles in place and prevent the silicon cap from pulling my hair. It is more of a comfort thing. I was told by a referee that this is illegal and could cost a DQ in the event. It is a confusing rule probably because I cannot understand it and there is another rule for Open Water that specifically states you can have 2 swim caps when swimming open water. I wanted to see if others experienced this and if so, what were your alternatives? I like to continue to where a poly and a silicon but if not, I need an alternative. Thanks!