Apparently the FCC Enforcement Bureaus just haven't been collecting enough enforceable fines from anyone to justify their existence. Radio pirates are not that prevalent and even if they were, any fines levied are usually tied up in litigation for years before anything actually gets paid. A few years ago DC ordered the local field offices to do a big push on marine vessels, which didn't yield enough violators, and there are a lot more marine radios than there are pirate broadcast radio stations.