That depends greatly on if the systems in question are expected to provide universal service or not. This is perhaps the crux of the question - do we expect Goo

That depends greatly on if the systems in question are expected to provide universal service or not. This is perhaps the crux of the question - do we expect Google to operate as a public service capable of delivering service in a way that meets the needs of 100% of the population? Or do we think it's acceptable for Google to decide that they're happy with 98%, modulo things like the ADA? USPS serves every US address. Lone Star Overnight is allowed to mostly serve Texas without a requirement to also serve Maine. Which category do we want Google to fall into? This kinda smells like we're expecting it to be a universally provisioned public service, but provided by a private entity with private funding.