a good reason why its not popular is the scary 'at will station inspection' clause in ham license ownership.
Normal telecom is protected by search warrants. There is nothing quite so bad as giving the government a signed paper that says we can come enter your house at will for invisible technical crap.
Oh bollocks!
In 43 years as a ham I have been visited just once!
The guys, all hams, just had a look at my station, read my logbook (not a requirement any more) & were on their way.
If I had important other things to do, they would have gone away & come back at a more convenient time.
Commercial stations also had visits, back in the day, but successive governments in all countries have reduced funding for any real engineering work, so visits to anyone are "rare as hens teeth".
It is mostly non-technical clerical people with computers these days, who can, & do, stuff up!
Their main job is "allocating frequencies", & in the 1990s, the Oz ones double allocated a Studio/transmitter link frequency, so the new link could interfere with a long standing one.
When we pointed out the problem, they didn't have an engineer to verify it with, & had to find, & employ an outside one.(apparently our "tame" EEs didn't count!)
The "spy" stuff was never part of a Radio Inspector's function--they were Technicians (real ones), & Engineers, who knew damn all about espionage.
Their main function was to ensure stations were not emitting signals outside their licenced allocation.
Broadcast Stations had one licenced frequency they had to rigidly stick to, instead of the large bands hams have, but also transmitted much higher power levels.
Imagine a 50kW transmitter having a 3rd or 4th harmonic, out of spec----- this may radiate tens of watts, whereas a ham's similar harmonics would be much lower.
The level of inspection was accordingly, much more intensive.
It is pretty much a given that if you do something a bit out of the ordinary in your house, rather than just eating, watching TV, then off to bed, you will run up against some regulatory authority or other.
The radio licencing authorities only lightly brushed against most ham's lives, leaving barely a flurry.
Back to the spies---most countries have a dedicated intelligence signals organisation to detect communications possibly associated with espionage, rather than further loading down a handful of overstressed Radio Inspectors.
Further, if I was running a spy network, I would make sure my agents stayed well away from critical radio services who might "kick up a stink" about interference.
It would probably be better to "pirate" on amateur radio frequencies, knowing the authorities will pretty much ignore ham complaints.