There are many possible reasons why Congress left blanks in the NICAC for the FCC to fill. It may be that the highly polarized legislature could not agree on the details of the policy, and its congressional supporters were aware that if anything was to be passed, the only way to do it would be with broad brushstrokes. Members could also have been eyeing the next election and realizing that taking a position on particular elements of a policy—such as banning or not banning certain kinds of online pornography—could prompt an outcry from industry, concerned parents, or some other constituent
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