JimRockford
I would approach everyone on this site with suspicion

I can only answer as to what the rules and procedures were ~7 years ago. Obviously things change, frankly, I don't believe you would have had these problems without decimalization providing more price points and more gray areas and more confusion.
I have no dog in this fight though, but do believe most stop orders are best left on the book. I might also add that many brokers send orders to regional exchanges, then when the orders are executed improperly and the customer is ripped off they blame the horrible specialist. Do not compare a regional book with a NYSE book.
As far as NYSE being self-regulatory you are correct. I had some trades that I was so furious with that I sent them to market surveilance. They ruled for the Specialist, acting as my agent. Great. Things happened with decimalization that was unexplainable. I really don't think the exchange was prepared for the moves but shotgunned them in to hurt and embarras the NASDAQ.
As far as the present investigation, I kind of think the NYSE and the boyz at GS have sold out to self interest. they have determined NYSE is worth more as an ECN. Why would you even have a computer system in place that would allow a specialist to purchase stock at a lower price than orders on the book?
Now in regard to price improvement. I am really not sure why you would possibly disagree with the advantage provided by the NYSE in giving price improvement to "LIQUIDITY ADDING" orders. That is orders on the machine before 9:30 and also orders left on the book outside the NBBO. If I am going to leave an order on the book all day, I want the chance to receive price improvement if a print goes on at a giant discount or premium.
I do agree however that I have very little interest in price improvement when my order is "seeking liquidity". I can see a quote, and I enter my order accordingly. I do not want to miss the market while this guy tries to get me a better price. As we know, invariably it traded ahead.