In this evolving wireless ecosystem, there is a need to understand how entrenched communities of use and emerging stakeholders understand technological transition and the potential alteration or closure of their use of the spectrum. This paper analyzes responses to proposed changes to the Citizen’s Broadband Radio Service (CBRS) through the federal rulemaking process undertaken by the FCC, exploring how diverse stakeholders frame potential shifts in access and use. Through a stakeholder analysis, quantitative textual comparisons, and a qualitative thematic analysis focused on sociotechnical change, this paper charts who is involved in conversations about spectrum policy, and what their perspectives are; discusses how these stakeholders approach existing and potential use of the band under discussion; and surfaces contested themes around innovation in these discourses. By focusing on transition, maintenance, and evolution, we underscore the complexities of spectrum policy and offer insight into stakeholder dynamics during periods of sociotechnical change.