I would assume that the "rule makers" are refers to the LC Policy and Standards Division (PSD) [ formerly known as CPSO], which is a subunit of under the Acquisitions and Bibliographic Access Directorate (ABA) , which is under Library Services (LS):
BIBFRAME was mostly developed under the Network Development and MARC Standards Office (NDMSO), which is a subunit of the Technology Policy Directorate (TPD), which is also under Library Services (LS);
It is possible that the committee memberships listed for the various bibframe sub-committees are misleading, but there seemed to be very few members from PSD.
Simon