Reading Covad's narrative rationale for their license, it sounded to me like
they were offering limited commercial service on a limited,
clearly-labeled-as-experimental basis:

"The use of limited market studies will permit
equipment testing (like other markets) as well as deployment of limited
subscriber
equipment to understand market requirements as well as technological issues
associated
with this spectrum. Covad hereby agrees to comply with the provisions of
Section 5.93
in conducting its limited market study. In particular, Covad will: (a) own
all of the
transmitting and/or receiving equipment; and (b) be responsible for
informing anyone
participating in the experiment that the service is granted under an
experimental
authorization and is strictly temporary."

Here's Section 5.93:
http://ecfr.gpoaccess.gov/cgi/t/text/text-idx?c=ecfr&sid=c8dac1967310be65aa88f8d1956f1241&rgn=div8&view=text&node=47:1.0.1.1.6.2.237.22&idno=47
 (sorry for the long link; TinyURL isn't working)

Their "limited deployment" consisted of 16 Aperto Packetwave base stations
and
200 subscriber units with authorization to operate at 20+ locations
across many markets:
http://fjallfoss.fcc.gov/oetcf/els/reports/442_Print.cfm?mode=current&application_seq=30877&license_seq=31192

Best,
-- 
Dylan Oliver
Primaverity, LLC


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