A major barrier to wider adoption of merchant transmission is the difficulty in identifying who benefits from the facility so that the beneficiaries will pay the toll. Also, it is difficult for a merchant transmission line to compete when the alternative transmission lines are subsidized by incumbent utility businesses with a monopolized and regulated rate base. In the United States, the FERC's Order 1000, issued in 2010, attempts to reduce barriers to third party investment and creation of merchant transmission lines where a public policy need is found.