In the meantime, the FCC faces the tall order of writing the rules for a series of spectrum transactions that will be far more complex than any of the other auctions the agency has held.

"The analogy I make is it's like moving from two-dimensional chess to three-dimensional chess, and perhaps three-dimensional chess while blindfolded," said Commissioner Robert McDowell. "We all simply do not know where the facts will lead us."

McDowell and other commissioners raised some concerns about the details of the proposal, such as the split between licensed and unlicensed uses, and the volume of spectrum set aside to guard against interference, but all the members of the panel acknowledged that, in general, the NPRM is a necessary starting point.

The proposal consists of three parts, beginning with a reverse auction through which TV broadcasters would put their licenses into consideration for resale, determining the inventory of available airwaves.

Then, the FCC would begin the highly technical work of determining how to repackage its spectrum allocations to ensure that the bands slated for mobile broadband are put to optimal efficiency, while relocating and consolidating the remaining TV broadcasters into another portion of the airwaves.