(IANAL and I don't speak for Google)
I would definitely check with Google and/or get your own lawyer's opinion, but the bolded section below would make me think that you would not need a premier license for the development phase.
Maps API TOS
9.1 Free, Public Accessibility to Your Maps API Implementation. Your Maps API
Implementation must be generally
accessible to users without charge.
You may require users to log in to
your Maps API Implementation if you do
not require users to pay a fee. Unless
you have entered into a separate
written agreement with Google or
obtained Google's written permission,
your Maps API Implementation must not:
(a) require a fee-based subscription
or other fee-based restricted access;
or (b) operate only behind a firewall
or only on an internal network
(except during the development and testing phase).