I think it might be very helpful to know whether either/both were in possession of/had access to what specific equipment, who used it, when, where, for what purpose. And who/what was on the other end of any communications.
That would involve search warrants, investigations, subpoenas, and arrests. Those are things that seem to be missing in this bizarre spy novel.
Possession of A HAM radio license is not necessary for the purchase and use of HAM radio equipment. A license is only for those who want to operate legally.
There are many illegal, so called “pirate” or independent radio stations broadcasting on the HAM radio frequencies without a license. Usually anti authoritarian groups that oppose any restrictions of their personal activities.
The Federal Communications Commission has a limited number of personnel for enforcement of the laws concerning use of the radio frequencies and so many of these “pirate” stations go on for years without being shut down. Many times the illegal station is first noticed and reported by legal licensed HAM operators.
If they are shut down and their radio equipment confiscated, they simply buy another transceiver for a few thousand dollars, move to a different location a mile away and go on the air again. It doesn’t have to be fancy, just anywhere their illegal activity is condoned and accepted by the neighborhood.
The problem with these stations is that they, many times, use and disrupt frequencies that are assigned to law enforcement, all first responders, commercial radio and TV broadcast frequencies. It’s all part of their “I don’t have to follow any rules” mentality.
If the radio frequencies were not regulated it would be almost impossible to have any electronic communication because everyone would be trying to talk over everyone else on whatever frequency they wanted to use, everyone interfering with everyone else. Only the radio Rambo would enjoy it.