Yes, that's true. Until local municipalities consider wifi a service they provide their communities, like parks and libraries.

Until then, yes, probably some spectrum should be devoted to OTA; maybe in SD, mainly PBS, I dunno, because this would be for the 'no access fee' case. That means cheap folks, or really poor folks. Society should be doing everything possible to eliminate the latter.

If TV receivers were built into smart phones, it would be easier to make this case.