Yes. Exactly. These set ups could be leased too (similar to leasing solar panels and wind generators to power agencies). Rent would cover maintenance and such by the amateur radio operator. I would think these stations would be great for being primary nodes to/from satellite based data. I like the AX25 idea.

I know of the COTHEN system because of my experience with using Ham ALE (http://hflink.com/). If you have the proper antenna configuration, a quick tuning apparatus, and a radio, establishing links can be done. This allows for optimal conditions depending on which band propagation is favoring. Using the data modes like packet is great because the system will tell you if conditions are getting worse, data will stop, the software will QSY the radio to a better band, and data will pick up where it left off. I assume COTHEN works in the same fashion.