Digital terrestrial television, national licensees

With the recent tenders, digital terrestrial television licensees are given by Supreme Council of Radio & Television in Turkey. Infect the results of the tender is some how surprising; total revenue of Supreme Council is 820.850.000 TL, which is appr. 350.000.000 €. When we think of regional and local licensees, total amount will be nearly TL
What is the reason of this huge amount of money? Why do broadcasters agree to pay this amount for a license with which just 10 % is watching TV? What is the business plan behind this scene? These are questions in my mind. If I figure out some answers, you can be sure that I will share with you. If you have any answers, please do not hesitate to share with me, and other readers. I will appreciate your support.