The administrative authorities for industry and commerce shall not issue business licences to any enterprises producing pharmaceuticals without the pharmaceutical Producer licence.

无《药品生产企业许可证》的，工商行政管理部门不得发给《营业执照》。

youdao

This is a way of transmitting signals in somebody else's licensed band, but without disturbing the licence-holder in any way for the incumbent, a bit like having a bird sitting in your garden.

ECONOMIST: Spectrum policy