An NAL is not a fine. It is a threat - "Prove to us that you have stopped violating the Rules or we will charge you this much money for your past and continuing violations."
Not exactly right. Regulations require the Forfeiture process to be in two steps. If a licensee of the Commission, a NAL is produced. If not, a Citation is issued. There were specific instructions including where to send the payment, so it definitely was meant to be a final judgement, even though an FO must be formally issued.
Practically nobody pays the NAL amount if they comply with the rest of the Notice.
That is sometimes the case. Rarely, though, for anything else besides a hardship claim. In this case, the Commission made it very clear in the footnoting that ThermoScientific is well-healed, so it expects them to just pay the proposed amount.
Having followed quite a few FO's, I only know of one that was somewhat successfully challenged and it was by Glenn Baxter, K1MAN. The Federal District Court did lower the amount, since the Commission's evidence was not all it claimed to be. And, last I heard, the Justice Department is moving toward a seizure to fulfill the judgement.
Perhaps, if this one ends up in Court,(unlikely, since probably a lot more in attorney fees than the fine) it would be interesting to hear if they compare their situation to the Indianapolis PD. But, probably not cost effective to go that far, but sure wish they would.