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The US is absurd: you don't have to wear a helmet on a motorbike, but you need one on a pedal bike ?!?
There's no national law in the US regarding helmets. It's a state-by-state (and in some cases, city) issue, and most state's don't require that adults wear helmets. That said, I don't know where you get off saying "The US is absurd" when the thing you're calling absurd doesn't exist.
They didn't write any legislation. They wrote up some suggestions that the FCC and the Congress are free to use or discard. They have every right to do that.
You're talking about something that does not currently exist.