ok, It's not about volume controls on the TV/Receiver/other.
Do the cable companies make the commercials? The cable companies get paid to show pre-recorded commercials.
Lets give the cable company the right to collect the money and the Commercial. Review the video and if the audio track does not meet certain specifications they can keep the money and never have to display the commercial. This would force the organizations who create these commercials to develop to the same spec or lose their money. (ok, give them a couple of tries...maybe two)
I'm pretty sure all the development houses would fall in line and this problem would disappear rather quickly.
It all comes down to who causes this problem and how far up the line we have to go to give someone power to say...Sorry. Your commercial does not play because it does not meet our spec.
Now, if the cable company is charging companies an extra fee to up the volume on a given commercial as they push it out over the wire then that is another problem.
Does the government have to be involved in this?