I think regulations should not be effective until passed into law, but the law can start when the regulation goes into effect up to two years before it is passed so long as what the law is was published then.
That is the government can create some complex regulation. If you continue to violate their regulation you will get a notice of fine, which you are then expected to put that fine into escrow, if the law is passed you owe the fine, if not you can collect it back (with interest?) in 2 years.
Congress cannot be an expert on every possible regulation that would be needed, that is a good job for hired bureaucrats. However they should be the final stamp on everything those bureaucrats propose.