"The use of voluntary standards allows administrative agencies better to skirt statutory limits on their authority, an offense to the concept of administrative agencies in possession of only those powers delegated to them by Congress… . It is no coincidence that the commitments extracted from regulated entities in the guise of voluntary standards tend to be things that the agency lacks statutory authority straightforwardly to require. Voluntary standards, as opposed to duly promulgated rules, can all too easily be used to bootstrap jurisdictional issues: got jurisdiction to approve or disprove the transfer of licenses but no express statutory authority to require unbundling of the licensee’s product offerings? Just make it a “optional” condition of the license transfer, add water, mix, and you have fresh jurisdiction to regulate a whole new area. The problem with this approach … is that it renders superfluous Congressional attempts to delineate our areas of responsibility….
Judicial review of the statutory basis for ‘voluntary’ standards may be difficult to obtain because such guidelines, being technically non-binding, may never formally be announced or enforced against any regulatee."
— Former FCC Commissioner Harold Furchgott-Roth in “Voluntary Standards Are Neither,” Speech Before the Media Institute (Nov. 17, 1998) (www.fcc.gov), quoted in his 1999 separate statement approving the SBC/Ameritech merger but protesting the imposition of extensive conditions by the FCC that amounted to extra-legal regulation.
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