It looks like there is another layer above the ALJ. The FAA decsionmaker can override and make final decision. See: J-2 at bottom of the document.

http://www.risingup.com/fars/view_far.php?par...mp;num=233

Quote:

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(2) The FAA decisionmaker will issue the final decision and order of the Administrator on appeal in writing and will serve a copy of the decision and order on each party

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