All of the major Athletic Commissions are a joke. Texas sanctioned Margarito, California's "punishments" are ridiculous and Nevada, well, everyone knows their record.
TRT is PED usage without the stigma, it can easily be abused and obviously enhances your performance. You can't blame the fighters for using it but it is clearly hypocritical to allow it and ban people for using nasal sprays and the like. It's yet another case of the people with the power to make decisions in sport being completely clueless about the facts.