said by a333 
:Why not put low-frequency WiMax equipment on hilltop towers, and feed THOSE with fiber? Install more RT's, and feed ADSL2+ from them, or RE-ADSL2. Provide grants to cable companies to upgrade to DOCSIS technology.
While the terrain argument may apply to higher frequencies, why not use lower ones? Also, the gov't can use LOS-based microwave towers as backhaul to remote areas, then re-distribute service using WiMax or WiFi on a localized basis, from the tower. Then, once there is sufficient ROI, they can upgrade to fiber backhauls, and in the end, full FTTH.
Hmm, a muni fiber MAN network, great idea. City can sell/lease fiber strands or wavelengths to ISPs/resellers. And that will encourage investment or the city outright going into WiMAX and cell carrier CAN lease for towers (note word "can", they probably will refuse due to "dog in a manger" market suppression and "not invented here"). Businesses can also lease fiber going back to POPs/NOCs/COs as a T1 alternative.
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In our area several cities are leasing out the top of tall public buildings and standpipes (water towers) to cell carriers. There is plenty of room at many locations for WiMAX equipment.