Afrustrating aspect of spectrum policy is the fact that in virtually every band one looks at, in most locations one finds spectrum that appears to be underutilized. (Admittedly this is complicated by the fact that there is no general consensus on how to quantify spectrum utilization.) There are many reasons for this apparent underutilization, including uneven terrain and nonuniform spatial distribution of needs for spectrum access. But a major factor concerns spectrum uses with high societal and economic value, with large peak-to-average usage ratios and society placing a very high value on requiring that certain of these uses must have immediate access to spectrum when they need it. With traditional spectrum policies this requires dedicated spectrum. Such highly societal value uses include public safety communications and military communications.

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分享政府频谱：一些技术选择

频谱政策令人沮丧的方面是，事实上，在每个人所关注的每个频段中，在大多数位置，人们都会发现频谱利用不足。（诚​​然，关于如何量化频谱利用尚无共识，这使情况变得复杂。）这种利用不足的原因有很多，包括不平坦的地形和频谱访问需求的空间分布不均匀。但是一个主要因素涉及具有较高社会和经济价值的频谱使用，具有较高的峰均使用率，并且社会对要求这些使用中的某些必须在需要时立即使用频谱具有很高的重视。使用传统频谱策略，这需要专用频谱。这种高度社会价值的用途包括公共安全通信和军事通信。