It seems to me the dark fiber approach will wind up just having one ISP for a given region of the network because to have multiple ISPs running along the same piece of fiber you need shared equipment at each end which is basically the "municipal network layer" model I described. How do you get regional competition with a dark fiber model?

Also I think the government upgrade issue so often boils down to just lacking the money to do it because defunding upgrade budgets is an easy target for budget games to make room for the latest tax give away or social program. Make it self funding and put protections against raiding it's budget into the charter.