In the federal agency I worked for, the "direct labor rate" was generally around 1.6 times the actual wages paid to the employee, for employees in the average of the pay scale. Since the benefits and wages are pretty consistent across the government, I would assume a similar multiplier for the FCC. There were also, in addition to that, costs we referred to as "Production" and "G&A" which paid for offices and facilities, utilities, maintenance, administration, equipment, IT and computers, interns, and so on. For the FCC, I assume that might be what the 20% is for. So the way I would interpret the numbers, is that the total cost they are trying to recover is somewhere around 1.8 times the wages paid to the employees doing the work. Just an educated guess, of course.