Google is stating that, if the FCC plays along with their rules, they will pay $4.6 Billion in reserve to the FCC, for the auction. However, before they are willing to put down the money, they are demanding the FCC adopt certain policies:
But for Google to participate, there's a catch. It's requiring the FCC to adopt all four of its licensing recommendations, no matter who ultimately wins the bidding process.
So even if Google should lose the auction, their goal is to attempt to “encourage” the FCC to make sure whoever gets it plays by certain rules. Those rules include a more open platform than some other companies are suggesting, such as open access to ISPs who are looking to expand service.