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The FCC governs all (non-government use) frequencies in the US - terrestrial and satellite.
However, the emergency waiver probably has more to do with the cell bands than satellite. Normally the cell frequencies are heavily regulated and planned to avoid interference between carrier towers. Having a satellite suddenly start broadcasting on the frequencies that your phone uses is going to confuse the neck out of the terrestrial network - unless that network happens to be washed away by a flood.