When the cellphone companies bid for spectrum, it was on the basis of their projected income. Given free texts, their projected income would have been lower, so they would have bid less. There's no opportunity to "recover the cost", since the amount bid was based upon revenue-maximising charges in any case. Charging more for a call would get the companies less revenue, rather than more.
Result: Call charges wouldn't be much different than they are now.
The bidding process means that the government has ripped off the customer by proxy, and any mandated limitations would have saved the customer at the government's expense. The cellphone companies wouldn't have seen much difference.
Certainly there's an argument in terms of corporate freedom for the government not placing such conditions of licence, but it's not one of customer interest.
Perhaps the better plan would have been to forgo bidding, and allocate spectrum, so that the parties involved would have had breathing space in which to compete.