OAR only makes recommendations because, instead of being an airspace regulator as their regulations require, they were made a minor office within CASA. Hence, all their recommendations have to be approved and actioned by CASA managers higher up the tree.
This allows the Department, Airservices and CASA to hold almost limitless internal discussions, and as far as the rest of us know, change all the OAR recommendations and dates.
Just to be clear: CASA is the 'airspace regulator', not OAR. The regulations and the Airspace Act say so. There is no mention of OAR in either.
In effect, the recommendations from the review are just CASA making recommendations to itself. I've pointed out how nonsensical that is before. In another example - I think it had to do with Avalon airspace - one of the recommendations of CASA was that Airservices propose something to CASA.
The current arrangement facilitates the use by Ms Spence of her prevarication weapon choice: Endless consultation processes.