This is a reasonable supposition, but it's not true. The FCC can and has created a whole raft of specific rules that implement the m much broader Title II requirements as they apply to ISPs, including decisions not to impose certain Title II requirements (which is a power that the statute itself gives them).
If, say, you were an ISP, reading Title I and Title II would tell you very little about what you have to do to comply with the FCC's rules. You would have to read the actual FCC rules and the order to actually understand your legal obligations.
(Maybe you have in mind a quibble about what "rules" are. By "rules" I mean the U.S. government publications that tell you what you have to do in order to not be fined or punished in some other way by the U.S. government, and specifically the FCC.)
If, say, you were an ISP, reading Title I and Title II would tell you very little about what you have to do to comply with the FCC's rules. You would have to read the actual FCC rules and the order to actually understand your legal obligations.
(Maybe you have in mind a quibble about what "rules" are. By "rules" I mean the U.S. government publications that tell you what you have to do in order to not be fined or punished in some other way by the U.S. government, and specifically the FCC.)