[meragrin_]

Bureaucrats write what falls under the CFR. Congress writes the US Code. Unless there is something in the US Code which specifies the period in which the licensee must have 50% of the satellites in place, the bureaucrats can change the rules in the CFR. Somehow I doubt Congress was that detailed. They likely just passed the buck to let the bureaucrats specify the details.

[axus]

There could be a lawsuit because now the courts get to decide the details, instead of the bureaucrats.