Phil, I was referring to the solenoid on top of the starter. From the way you describe the voltage issue at the controller box, you have either a problem at the solenoid on top of the starter or the controller box is going stupid on you. The easiest way to test it is to take the wire from the control box off the solenoid and apply 12 volts to the connection for the small lead on the solenoid. If it still doesn't start, your starter solenoid is shot. If it does start, the problem is likely in the control box BUT my money is still on the starter solenoid based on your tests so far.
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