Cleveland launches plan to provide cheap broadband
Would it make sense for the municipality to own the pipes that run in the city ?  Like some cities own the sewer pipes.
Could it be an infrastructure that the city builds, owns, maintains and rents to ISP ?
The city would have a full control on how many houses are connected.
That is the type of investments that a city is suited for (i.e. large upfront cost financed by bonds).
AT&T, Charter, Comcast, they have no incentive to invest a lot upfront. 
And they might duplicate the infrastructure.
At the end the customer pays for the piecemeal fiber deployment, and redundancy.