Boston Non-Profit Wi-Fi Plan

Boston's Task Force "recommended a radical new approach to building a citywide WiFi network, proposing that the City designate a non-profit entity to build a network open to innovators of all kinds while also delivering some of the lowest-priced broadband service in the country." In reality, hasn't every gov't designated a non-profit do this, since all the free services and low-cost services amount to zero cash flow and negative ROI???