No, that isn't how everything works. Sometimes we forego the financial means of individuals and create things that would not otherwise emerge. Both the US telephony and US electrical systems were built out to include the vast bulk of residences in the US regardless of the means of individuals to fund that small part of the system they privately benefited from. Many of the "capitalists" of the time understood that the net value of this enterprise was strongly positive despite the subsidy gifted to those who had not paid all of their part.

Universality has value. It is difficult to calculate that value; simple ledgers and simple views of economics do not suffice. It is looong past time that we set aside the simple, failed model we have endured and solve this problem. That is what these municipalities, in their disparate, halting and often flawed ways, are trying to do.