Does "proposed governance" mean "recommended control"?

Context:

As part of a wider package, the Food and Drug Administration (FDA) laid out proposals to control an assortment of tobacco products, including cigars, pipe tobacco and hookah tobacco. But it is the proposed governance of electronic cigarettes — controversial devices that deliver nicotine-laced water vapour — that has drawn the most attention.

More:
http://www.nature.com/news/fda-proposes-regulation-of-electronic-cigarettes-1.15105