Finally, once you have the majority of planes and pilots under the exemption, plus years of experience without any major problems, you then submit an NPRM and have the rules changed. This is definitely a long-term strategy here.
This was how tandem-skydiving was introduced. For about 20 years tandem equipment was "experimental" and the jumps were conducted under a special exception to the FARs. Then, by the early 2000s, the FAA codified the status-quo with a change to the rules.
