Look at item #2 under "Third-Party Access Control" which states a home router manufacturer must answer this question: "What prevents third parties from loading non-US versions of the software/firmware on the device? Describe in detail how the device is protected from “flashing” and the installation of third-party firmware such as DD-WRT."
What they're doing is requiring home router manufacturers to claim their device cannot be flashed to gain FCC approval. Theoretically, the FCC could penalize router manufacturers that allow their routers to be flashed. These manufacturers would then no longer be allowed to sell their devices in the USA.