Yes, because the US Congress should be deciding the future structure of the US Secondary Mortgage Markets, not unelected government officials in the Executive Branch.
1. NWS and Major .... seems to have been answered even if never asked directly
2. Moving new form to utility ----- FOR SURE ---- ok IMO ----- that is not something FHFA can do without Congress again --- it would be beyond what is necessary (or normal)
And that is good as you point out ---- if the GOV wants to move in such direction it will need to go to Congress --- ouch !! ---- or at minimum start discussions and pending litigation