OK, you're not really understanding how it works.
OUTPUT_SCALE in the ini doesn't mean anything. It could be called BUGGER_SCALE. As I said, this line in your hal file...
Code:
setp [HMOT](CARD0).pwmgen.00.scale [SPINDLE_0]OUTPUT_SCALE
Means "Set pin/parameter for your mesa card pwmgen scale to what is in your ini SPINDLE0 section to the value of OUTPUT_SCALE". everytime you see brackets in a hal file it is telling that line to reference that variable in the ini file.
If your ini said this:
Code:
[SPINDLE_0]
BUGGER_SCALE = 700
And your hal file had this line
Code:
setp [HMOT](CARD0).pwmgen.00.scale [SPINDLE_0]BUGGER_SCALE
it would still be setting the pwmgen scale to 700.
This is the doc for what you are trying to set
linuxcnc.org/docs/html/drivers/hostmot2.html#_pwmgen
according to this 700 makes absolutely no difference from 2800 because it's getting clipped. You don't have to guess about this, after you launch linuxCNC open halshow or run "halcmd showpin*" (can't remember exactly, look it up) and look at that hm2_7i92.0.pwmgen.00.scale value. Even though you are setting it to 700 it should still show that it is actually at 1.0
I looked a some configuration on a mach forum and they have the PWM base frequency for that thing at 35hz, which basically means it's garbage but you need to lower the frequency below 100hz and use the scale appropriately. Since 90% of the time nobody actually follows advice I changed your hal files for you.
I changed OUTPUT_SCALE to PWM_SCALE to illustrate the point that that can be named anything. I also Added PWM_FREQ to your ini and linked it in your hal file. If you run PNCconf again you will wipe these changes out. Looking at the date on your files it appears that's how you've been doing this but once you run PNCconf the first time you should stop using it and edit the files manually.
Now all you have to do is edit those to values in your ini and restart linuxCNC each time. Don't do anything else until you get the output you're looking for.