I read a bit of that, and it looks like the document you linked does not support the threat to fine $21k/day for not responding to the Special Order. There is

I read a bit of that, and it looks like the document you linked does not support the threat to fine $21k/day for not responding to the Special Order. There is quite a lot of "voluntary" in there, along with "future regulation". I would guess that a lot of the voluntary safety assessment letters they get essentially say, "this is not entirely safe in absolute terms, but is definitely safer than an inattentive human driver."