If national governments weren't thoroughly corrupted by the vested telecom interests, they would fund local-owned efforts to set their own baselines, allowing profit-driven enterprises to address sub-areas that are profitable within that area to deliver even better access.

The problem is that it's the opposite (at least in the USA) - state and national governments are lobbied by the telecom/cable industry to pass laws prohibiting local initiatives, so local governments have to give massive subsidies or concessions in order to get anything.