Dish wants to use spectrum acquired when Dish bought satellite operators DBSD and TerreStar Networks out of bankruptcy.
The waiver, had it been granted, would have allowed Dish to begin operational activities. Instead, the FCC wants a formal review that will take the balance of 2012. The caution on the part of the FCC probably was influenced by criticism of the perceived "hastiness" about approving a similar request by LightSquared. FCC delays Dish plans
There has not been concern that Dish will have the interference issues that so far have blocked LightSquared's plans, but the FCC probably wants to insulate itself from charges that it has not allowed a full vetting of any potential issues to other wireless users.
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