> It seems like there's a lot of underutilized spectrum.
There's some good reasons for this. HF is pretty challenging to fully utilize.
You have propagation that varies between "worldwide" (so it's difficult to assign new bands without ITU involvement), and "sunspot" (so you better have a plan B). And these variations aren't just over the duration of a sunspot cycle, but also over the day/night cycle.
eg, for maritime use, we have channel clusters at 2, 4, 6, 8, 12 and 16MHz. Which to use depends on the time of day the distance to the other station, and how much the sunspot cycle is messing with your first choice. Fun!
Then the physical challenges that arise from the ideal antenna length being proportional to the length of the wave. At 2.4GHz the challenge is precisely cutting your quarter-wave antenna to a fraction of a mm (31.25mm). At 2.4MHz same challenge becomes finding space for a 31.25m (~100feet) antenna.
Another big consideration is that these frequencies aren't particularly friendly to high-speed digital use. I suspect this is related to Nyquist theorem - the fewer waves you're receiving per second, the fewer symbols per second can be encoded into them.
And finally, some rather difficult legacy users. Aviation and Marine users who consider their usage life-or-death, radio amateurs that likely do too (heh), radio-navigation (I was reading about Loran making a comeback recently, to provide some backup when GPS is manipulated), over-the-horizon radar (which can be a lot like sharing a telephone call with a foghorn), etc.
All this taking up about as much bandwidth as one wifi channel ..