I. Introduction
The electromagnetic radio spectrum is a natural resource, the use of which by transmitters and receivers is licensed by governments. In November 2002, the Federal Communications Commission (FCC) published a report prepared by the Spectrum-Policy Task Force, aimed at improving the way in which this precious resource is managed in the United States [1], The task force was made up of a team of high-level, multidisciplinary professional FCC staff—economists engineers, and attorneys—from across the commission's bureaus and offices. Among the task force major findings and recommendations, the second finding on page 3 of the report is rather revealing in the context of spectrum utilization: