> Do I think that the FCC would be trying to clawback money if SpaceX hadn't won?
Looking at this as a clawback attempt is the wrong framework. The awards are tied to contract terms with clawback-with-penalty provisions. The FCC has identified cases where it is unlikely that the contract terms could be met and provided an opportunity for those with grants to surrender them without penalty if they feel they could not meet the award terms. No effort is being made to undo awards, and if winners think they can meet the terms, they can keep the money.
Its win-win if award winners avail themselves of this opportunity, where they can't meet the terms, because it avoids an after-the-fact clawback with penalty which is good for the winner, and enables the funds to be redirected in advance rather than recovered in arrears, which is good for the government.
The mismanagement is that the places where it is almost certaibly impossible for the terms to be fulfilled, the FCC should not have granted the awards in the first place (of course, it is also true that applicants should have done their due diligence and not applied, so its not exclusively the FCC at fault.)