The VIOP will be used by civilized people with laptops. They will probably use a headset. The Wifi Service will most likely be a service that one has to pay for. Therefore, limiting those that would be on the phone/VOIP.
If cell service gets the ok then it'll be a free for all. They'll let anyone have a cell phone these days.
On a side note, it's good to know Congress hasn't been TOTALLY worthless this round. Maybe in September they can send up some legislation allowing us to stick some pipe in the ground.