I think the fact that Swarm consulted with the FCC, had their plan to launch satellites rejected and then decided to launch anyway indicates the fines weren't suitable. A simple 3 year ban on further launches would've changed that. I find the fact that Swarm did this knowingly particularly egregious. I'm also not sure the lack of violations is a good indicator that the FCC is working since I don't think there's a particularly big sample of companies doing this for other structural reasons.