I remember when Motorola offered to give up all their old mobile phone frequencies to get what they wanted for cellular service. Some idiots thought that they could set up their own mobile phone service if they could get the licenses. They were too stupid to realize that the startup cost was huge, and that the manufacturers would stop making new equipment after Motorola shut down that service. Not only were the startup costs high, but you needed an operator on duty 24/7 and customers couldn't 'roam' and still use their old car or briefcase phones. BTW, I repaired one of those briefcase phones and had to replace the 'Gates' lead acid batteries. They were over half the weight of that crappy phone.
As far as an organized system, that is like when HBO had the Videochiper II developed to scramble C-band TV signals. They wanted to set up a single clearinghouse for everyone who used the scrambling, but the sat TV dealers didn't like that. We ended up with a real mess. Sometimes you had to change vendors to get a new channel. Others were over billing, terminating service on paid accounts, or randomly dropping channels from your package and claiming nothing was wrong.