You don't understand what WAPA are trying to do.
They want the sole licence for that frequency range so that they can resell it to their members in 20MHz or 40MHz blocks.
Problem is the precident has already been set. I'm a member of the Land Rover Owners Club of Southern Africa. That club is affiliated with the Off Road Radio Association. ORRA have two nationwide VHF frequencies. If I go to ICASA and apply for a frequency so I can have a two way radio at my house or office and a radio in my 4x4, I have to jump through no end of hoops and have the patience of Job. Yet, if I show my LROC membership card to ORRA and pay them the R130 (or thereabouts) a year I immediately get my licence to use my radio in my 4x4.
Something similar is starting to happen in the WISP industry. Some of us are applying to ICASA for specific licenced frequencies outside of the ISM frequencies. We were recently allocated a frequency in the 5.4GHz band (outside of ISM band) to run a specific point to point WiMax backbone connection. I know there are others who either have specific licenced frequencies, or who are in the process of getting them. Now WAPA wants to get in on the act, buy all the spectrum that's left and resell it in small chunks.