Congress, when they draft the legislation, may do it... the Order only stipulates the valuation of the individual assets is to be "accounted for at no amount less tha[n] the total cost to provide students the education the educational document evidences" [see: 2(c)]... nothing limits their ability to develop or use other methods of valuation.. this is just a common cost based valuation method... the valuation of intellectual property is not the innovation of this solution, just an element of it.
I intentionally left the the initiative very mercurial, both for sake of simplicity and because people love to discuss & make things better than they found them!
I advocate people send an "Addendum" with their Orders if they want to propose how the details should be worked out... I was only concerned with the broad strokes...