No person with many millions to spent would invest in this unless they had a reason to believe the government would NOT shut them down. Only a foolish billionaire could afford to gamble as you propose. Only an insane person would start a business with the intent to sue the federal or state governments.
I think the point would be to start a small exchange cheaply. You are correct, one can't spend a lot on this, because it likely will end up in court, and the legal bills will be bad enough.
Only an insane person would start a business with the intent to sue the federal or state governments.
The business wouldn't sue anyone. The federal or state government would have to come after it.
I think the idea would be to get support from the community for doing precisely this as a challenge.