By creating a new Federal regulation which has, within itself, the text of the two it replaces, plus the text of the new regulation they wanted to pass anyway.
Which gives a really nifty tool for political brinkmanship: “That regulation you need to do this function? Give me this new language, or I won’t support it.”
It’s the kind of shit people come up with when they honestly believe that an inactive government is a good thing, and that any government action is definitionally bad and freedom-limiting.