I think the issue with displacement has less to do with the FSM and more to do with the PEA and how it's worded. There isn't any way to displace someone out of a base per the language or lack there of in the old PEAs.

They could probably get away with shrinking a base, but closing it all together is out until we have a CBA with actual displacement language. Nothing is stopping them from opening up a new base... but you'd still have to staff it. Then the problem lies in if say you shrink one by ~50 but only ~20 bid out. Now you're well overstaffed on one end and have to train for the other.

That's the way it was explained to me.