I’d bet it’s simpler. Saying “yes” to the ‘can we share this outside of this company?’ Question means a lot of work and meetings and red tape and somebody is going to have to rope in legal and … and … and …
Or, “no, get back to work”.
Also, it’s very simple: Imagine you approach Qualcomm. The script probably goes something like this:
“Sure, we’ll license you that patent, for $0.92 per device, a $25K per month maintenance fee, and compliance with our terms and conditions - chiefly, don’t license this patent to anyone else, and don’t share the source code of your implementation.”
Keeping the implementation secret as a condition of licensing the patent is not entirely unimaginable. It would be, however, very, very stupid (if you aren't outright evil), and not provide any extra licensing rents to the SEP holders. In the video world they don't do this; because everyone expects that anyone actually shipping a codec is going to pay[0].
But then again this is also cellular firmware; implementing standards owned by Qualcomm. And Qualcomm loves pushing the boundaries of how anticompetitive you can be with legal monopolies before actually violating competition law. They're the ones that saddled the US with "CDMA" "standards"[1] that put half of America's carriers on incompatible networks with phones you couldn't migrate to other networks. (Even other CDMA networks!) If Qualcomm had their way, they'd own LTE and 5G lock, stock, and barrel with the only modems you can buy being buried in a Qualcomm Snapdragon SoC.
[0] That's not to say that video SEP owners are particularly happy right now. The head of MPEG insists he was sacked for, among other things, complaining about MPEG's inability to standardize a royalty-free codec under ISO's patent disclosure rules.
[1] Including a competing standards body to 3GPP called, I shit you not, 3GPP2.
So the firmware is locked down. To do otherwise will break spectrum licensing as the device then becomes capable of doing things outside the original licensed purpose.
And then Intel still goes and makes their "automatic geolocation for frequency policy based on neighboring APs" mechanism the default and only policy in their wireless Wi-Fi drivers.
So what. Take pretty much any older transceiver, swap out the quartz(es) and suddenly what used to be a ham radio can now communicate with police radios, or a commercial radio can be converted for ham use.
Yes, of course the former case is illegal and the latter legal as long as you don't transmit without a callsign and a ham license. But still, radio manufacturers were not required to stop people from doing such mods - to the contrary, up until the 90s it was commonplace to have detailed schematics and BOMs in radios, and it was just as commonplace for people to mod their radios.
I don't get why the FCC is putting up so much pressure on locking down devices ffs.
You have a similar requirement for DFS handling on 5-7Ghz wifi as well, specifically for radar detection and transmission disable when an operating radar is detected: 47 CFR 15.407(i)(1) ( https://www.ecfr.gov/current/title-47/part-15#p-15.407(i)(1) ) -- This version of the requirement is what triggered the wifi aps lockdown issues back in 2016.
The communicated view of the FCC is generally that devices that easily permit operation outside the 'licensed boundaries' essentially become radio nuisances. A plurality of vendors will then essentially act aggressively to lock down their devices. If they don't, the FCC will and has leveraged the FTC to prevent import and impound shipping of such devices. Some other nations do something similar as well.
All that is probably ripe for a Chevron challenge, but even if you have a case that could win in court, taking the FCC to court is fraught, at best. It's definitely not for the faint of heart. In the case of big companies and vendors, where most of the IP for 4G/LTE/5G lives anyway, it would be pretty strictly a commercial mistake to pick that fight.
As for the political reasons they do it, it boils down to funding and the political fights that produced the system of auctioned spectrum and gatekept spectrum we have today. Tearing some of that system down is more likely to succeed. I have no idea what the second and third order effects of that would be though.