A pass-on of that kind, if it became the final solution, would defeat the FCC's goal.28 Additionally, the court viewed the Commission's action as involving promulgation of prospective rules to implement agency policy, not adjudicat [ion of] disputed facts in particular cases" for which a trial-type hearing might be appropriate. 572 F.2d at 22 (quoting United States v. Florida East Coast Ry., 410