But "clear guidelines" would mean that some would clearly be within the rules while some would be clearly breaking them. It's a much stronger negotiating posit

But "clear guidelines" would mean that some would clearly be within the rules while some would be clearly breaking them. It's a much stronger negotiating position for regulators to use a vague "well, we're not sure..." and leave themselves room to maneuver and potentially punish any of the 'unicorns' at any time.