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If the linings are not new, it's possible (likely?) they have been contaminated with wheel bearing grease. Once that happens they are junk. (period) No matter how good they look.
If the good advice above doesn't help, bite the bullet , buy new shoes and arc them to the drum.
From another board-
=" Usual procedure now is to cover the drum's braking surface with a strip of sandpaper, reinstall the brake plate with both shoes and, with them pressed lightly against the sandpaper, rotate either the brake plate or the wheel. Stop frequently to inspect the linings, clean out dust and readjust the relationship between the shoes. When an inspection shows that about 90% of both linings have been sanded, remove the sandpaper and install the brake and wheel on the bike; you should now have an excellent brake."
Thanks to Stuart for this tip.
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