I wonder if a credit voucher kind of system could work. Rather than give the money directly to the ISPs who will take the money and change nothing. What if each user in the area was given a credit voucher for their share. They don't get to keep the money, but can choose to spend their voucher via an ISP who meets the criteria. Customers see direct benefit because they're "purchasing" services with govt money and ISPs can't just take the money without reinvesting.