I agree... usage issue: another example is modify a phone so it transmits at non-standard frequencies I'm in my right to do it. If I'm at home or a non-public place that's shielded I can do what I want, but the public airways outside are under FCC regulation and then I'm breaking the law not for doing the modification but for using it in regulated space. It's the same way a companies tests out development phones and transmitters before getting a licence.