I think the simplest method from a regulatory structure perspective is to force the deployment of broadband by making it a universal service that is required to be offered by cable, telco and fiber infrastructure providers. This would include minimum connection rates that would increase over time. This would eliminate the need for new schemes of managing problem, as universal service obligations and their management already exist. This same universal service system offers support for expensive deployment schemes - like extreme rural situations. This method worked for voice services (POTS) and can for broadband.