(1) there are lots of little annoying laws related to money transmitters that makes it very difficult to get new payment stuff off the ground
(2) If you have deep pockets and good lawyers you can pretty much ignore these laws
I strongly suspect that the correct solution is to change the laws, but that this is also an even greater pain in the ass than protecting yourself with highly paid lawyers, esp. since relevant laws vary significantly from state to state. What exactly Greenspan is attempting to prove here is beyond me, but I'm still quite curious as to the results.