(concurring).
I refrain from joining those portions of the opinion touching on the delay in promulgation of the rule, not from any particular disagreement with them, but from uncertainty where blame ought finally to rest, if anywhere. So much is clear from the record: the issue has been complex and difficult for the Congress, for the agency, for the industry, and finally, for us. In all other respects, however, I fully concur in Judge Edwards’ well-reasoned opinion.