Abstract: A frequency resource allocation system and method for a wireless network that comprises one or more unlicensed cognitive devices that operate using white spaces in a TV frequency spectrum and one or more licensed incumbent devices that are associated with an incumbent service that uses the TV frequency spectrum stores one or more frequency resource databases that store one or more frequency band lists. A frequency band list comprises one or more frequency bands within the TV frequency spectrum. Merit-related information specific to a location associated with the wireless network are collected to choose a specified frequency based on the merit-related information. The specified frequency band can be chosen based on a merit class derived from transforming the merit-related information into different merit classes, with each merit class being associated with one or more frequency bands. A resource user device is then notified to operate in the specified frequency band.