They government is charging them those fees. And the government has said that they do not need to pass those fees onto the customer.
In order to operate they must pay those fees. They do not need to charge the customer those fees. But they do anyways.
Thus, they are passing the cost of doing business onto the customer.
Read the quoted text.
Is it the only issue? No. It is part of the issue. And the FCC called them out on it.