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I have worked on this for decades - so I have thought bout it a bit !

"We have a huge investment and deployment of legacy technology and replacing the old with the new will take some considerable time"

"What happens after that? A migration of the spreading technology, one service band at a time, until the entire spectrum is covered. How long will the process take? Looking at the recent move from analogue to digital TV it could be as long as 20 years and as few as 10 or less once it starts"

AND BY THE WAY - it is already being practiced by those who want to communicate without being detected.