Step 1 would eliminate the whitespaces, since there'd be no open channels left. Instead of channels being spread out, say 8, 10, 21, 23, 32, 44, 48, et cetera the "repacking" would reassign stations to 7,8,9,10,11,12,13,14,15. i.e. No space.
Step 2 would take any "left over" stations above 29 and double-them up with the lower numbered stations. i.e. WBAL and WBFF might share the same channel 11 spot.
Step 3 would sell off channels 30-51 in 2013. Therefore what's left of the tiny TV Band will have every channel packed and there'd be no (or almost no) whitespace left
My Free TV streams 19 Mbps == 6000 GB/month per channel. No cellphone can do that. WHY kill off this excellent service??