It all depends on how the bill is written. Volume is not the same as loudness. If you take the commercial/whatever and use audio compression and processing gear (or software) you can crunch the crap out of the commercial, do a little frequency shaping, etc. and it will -sound- a lot louder than less processed audio. Yet, you can show using VU meters, peak meters, and similar 'volume measuring' devices and they will show the program and commercial audio as being about the same. The levels (amplitude) peak and otherwise will not exceed a particular value yet the heavily processed commercial can still sound like it's blasting you. It's all in the processing/shaping/limiting etc. And, of course, how the bill specifies that the 'volume' be measured or determined.