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The FCC is trying the attrition gambit:


Baxter cannot legally operate without a valid license so they'll tie up his application for renewal for a protracted amount of time (pending payment of fines levied, of course) and hope he'll voluntary turn his license in, as was the case with WB2OTK.


Of course, this tactic may backfire if he can show proper cause for reinstatement to an Administrative Law Judge as part of a fitness-for-license grant hearing.