Under the FinCEN guidance, “An administrator is a person engaged as a business in issuing (putting into circulation) a virtual currency, and who has the authority to redeem (to withdraw from circulation) such virtual currency.”
There is no method of withdrawal from circulation, unless you include destroying the private key, which any user of bitcoins could do. There is an argument that they are not permanently unrecoverable.
The coinbase transaction itself is not like a currency issuance, the currency issuance was done when Satoshi put 21 million bitcoin into the protocol. The coinbase transactions are merely discovering these previously issued currency by findiing the correct block hashes. And it would actually be the pools (or whoever does the actual coinbase transactions) since pool miners are exchanging processing power for btc, which is nothing like currency issuance.
Agreed. So, arguably miners are not issuing bitcoins either.