Just because an archaic concept has been reiterated by a political appointee does not mean that the concept is valid.
In the case of radio, metro area listeners show by their measured actions that they vastly prefer the major stations over the little suburban stations, even within the coverage areas of those outlying stations. People identify more with the umbrella city and metro their community is part of than with the individual components.
Add in the fact that the local advertising base has changed with the Walmartization of America... with the chain stores and big boxes... and the significant reduction in local businesses that can afford radio advertising. When the revenue dries up, local service is no longer possible in many suburban operations.
But the folks who wrote the rules in the 30's had no idea this would happen. In fact, they thought a big "regional" station was 5 kw day 1 kw night on AM. That's not true any more, either.
Rockland and Westchester are part of the New York City metro. There is a reason why the FCC rules speak of "community of license" and not "city of license" and why, in the ascertainment era, community leaders from the area of service, not just one city, had to be interviewed.
So, with virtually all the significant NYC radio stations serving Rockland and Westchester, that area is definitely well served.
You do if it is technically possible, as the technical aspect is the main focus of the FCC... everything else is ancillary.
And, for its first 20 years, WFAS-FM duplicated the AM with no separate programming and a big 100 watts of power. Hardly any "service" in that.
So you know operating a pirate is a criminal act. It endangers public safety, as well. Yet you say, "Let the pirates reign". How do you reconcile the two?