Not an expert on the RC either but. . . .
I get the impression that they (the RC) may be in uncharted waters here.
Perhaps their appearance of "toothlessness" is due to the fact that they make recommendations and then whatever organization makes an effort to comply.
I get the feeling that they haven't dealt with a group like the witnesses ever before -- a group that will not comply with recommendations, but must be dragged kicking and screaming into reality.
So to write them off as "toothless" is probably not fair. . . .perhaps they appear that way because they've never had to show their "teeth" before!