said by kpfx:NAB isn't exactly guilt-free when it comes to hoarding spectrum. The biggest difference that I know of is when the FCC gives out a permit for a TV station you have a limited amount of time to do something with it or risk loosing your license....
So just looking in my area alone I see plenty of junk "home shopping" channels and channel squatters that do nothing to serve the public interest... they're only there to fulfill the requirements of these LP-TV licenses so they don't revert back to auction (and theoretically into the hands of a more competent owner).
You are right about the NAB, it was a huge mistake by them to insist on keeping channels 2-6 (worst channels for digital TV) rather than accepting 7-51 as the digital core.