"Cognitive radio" and "software-defined radio" (SDR) are today an important consideration in major spectrum debates in the United States. The U.S. drafted its first SDR rules in 2001, and since has continued efforts to resolve potential regulatory concerns and facilitate the benefits of the technology. At the same time, Japan has had a very rich experience in the lab with SDR, with significant achievements on many engineering topics. However, the regulatory state of SDR in Japan has not kept pace with the United States. Likewise cognitive radio, while a topic of inquiry, betrays a different focus. The paper explores why the paths for these technologies have diverged in the U.S. and Japan.