The one thing to consider is that the FCC is an agency managed mostly by lawyers and political appointees. However, Congress has a hand in directing the results that they like.
In recent decades radio has been a good source of investment for politicians, and a revenue generation device for both licensees and people selling services to stations.
One need only watch how fast something gets passed, approved, or relicensed ... and looking at who the players are to understand the dynamics involved.
The part that angers me the most is the utter contempt that the agency, and politicians, have for the small businessman.