When you complain to your service provider, what happens is the vendor will say to the carrier sending traffic "hey calls from this number are getting us complaints, please shut it off". The call traffic just moves around or changes number. There will be several layers of resellers involved, so it's not like the resellers are being intentionally malicious and generating bad traffic, they're just relaying the calls for their customer and so on.
No one actually wants to investigate, so getting calls from a certain number to stop is usually enough to please everyone. If the FCC wanted to, they could kill this stuff in a week just by adding stronger liability rules and making carriers vet their traffic. If resellers had even a $5000 fine liability for sending bad traffic, they'd pretty quickly figure out a way to limit their exposure. But without real pressure, the FCC is happy to let things stay as they are.
Is the FTC in on this rubbish? Are they getting payoffs? WTF?
Or they proposed a fine, then the big carriers said if there was any liability, they'd stop selling to smaller guys and the whole system would stop working.
That one pissed me off enough to ask for a supervisor, which caused the guy to immediately hang up.