I'm not necessarily happy with the outcome here but the FCC never compared their current generation vehicle launch record to anyone else's. They're saying SpaceX planned to launch 12,000-42,000 satellites within a certain timeline using new vehicles to keep up with demand but are currently at ~5,500 with Starship's start not going as smoothly as SpaceX planned for. Starship (or a Starship class vehicle) will get there eventually, almost certainly IMO, but the point here is it is uncertain if it'll get there in time to meet the obligations (part of which is timing) Starlink has made.