I get the impression from their wording that the licensed and unlicensed bands would have different thresholds and rules.
For unlicensed, it wouldn't be about registration, it would be about making effective use. It's hard to imagine a situation where nobody is making good use of 2.4GHz, so it should stay unlicensed, but the aspect of effectiveness is still there. Occasionally old tech that is acting like a noise blaster might need to be culled.
Perhaps combine with restrictions on use - if you don’t use the spectrum, or use more than you need, it gets taken away