The Recovery Act grants the FHFA expansive authority in its role as a conservator and permits the Agency to act in what it deter-mines is “in the best interests of the regulated entity or the Agency.” §4617(b)(2)(J)(ii) (emphasis added). So when the FHFA acts as a conservator, it may aim to rehabilitate the regulated entity in a way that, while not in the best interests of the regulated entity, is beneficial to the Agency and, by extension, the public it serves .
They said the NWS is not necessarily good for FnF but is good for the public. Thus "the public it serves" does not mean FnF.