While Congress has not moved to make the necessary changes to the digital television transition legislation that the Cyren Call plan would require, O'Brien said he's optimistic the FCC will adopt the "essence" of his plan. Frontline Wireless, another startup founded by a group of tech and FCC veterans, made a similar proposal in February.

The Frontline plan has generated significant debate in Congress and in the broadband industry. O'Brien said the Frontline plan would accomplish many of the same goals, but he still believes his plan is better.

"We were building ... as much pressure as we could to get the relief we were looking for," O'Brien said. "When [Frontline] introduced their proposal, it relieved some of that pressure by diverting to a different model."

Frontline: Frontline's plan would marry 10MHz of spectrum from the chunk to be auctioned with 12MHz assigned to public safety. That 22MHz would be auctioned, with the winner required to build a network that gives priority to public safety agencies. After public safety needs are met, the network could be used for commercial services, although Frontline has called on the FCC to require wholesale access for other providers.

Frontline has assembled a team of tech and wireless industry heavyweights, including CEO Haynes Griffin, founder of Vanguard Cellular Systems; Chairwoman Janice Obuchowski, former assistant secretary for communications and information at the U.S. Department of Commerce; James Barksdale, former CEO of Netscape; and L. John Doerr, a partner in the venture capital firm Kleiner Perkins Caufield & Byers.

The Frontline plan gives public safety the best chance for an interoperable, next-generation network, said Reed Hundt, Frontline's vice chairman and a former chairman of the FCC. The difference between the Frontline and Cyren Call proposals is that Cyren Call asked for a "government handout" of spectrum and money, while Frontline relies on private money to build the public safety network, Hundt said.

Verizon Wireless has opposed Frontline's plan, particularly its call for open-access rules. Such rules would drive down the cost of the auction, said Dick Lynch, Verizon Wireless' executive vice president and chief technical officer, during a Senate hearing in June.

But Verizon wants an auction that favors large providers, Hundt countered. "The way to get a really low price for the treasury is to say Verizon can have it all, because nobody will bid," he said. "Verizon wanted to buy all the spectrum and put it in the bottom left-hand drawer. It's an effort to monopolize."

Verizon: Verizon has generally declined to comment about the 700MHz auction, but Lynch, in his June testimony, called on the FCC to auction a 20MHz block of spectrum that can be used across the United States. This would allow the United States to "lead the world" in fourth-generation wireless deployment, he said.

Verizon also opposes open-access rules, similar to net neutrality rules proposed by some consumer and advocacy groups for existing broadband networks. "The auction needs to make the spectrum available in ways that will promote, not cripple, broadband," Lynch said. "The commission should set auction rules that allow for full and fair competition by qualified bidders, without artificial and unwarranted constraints."

Past competition auctions without such conditions have created a competitive wireless marketplace offering a "broad range of digital offerings," Lynch added.

Several conservative think tanks and advocacy groups have also opposed the Frontline plan.

Public safety: Public safety groups are not united in their views on the 700MHz auction, particularly since it became clear that Congress would not support the Cyren Call plan. However, some public safety groups have warmed to the Frontline proposal.