I don't think you read actual proposal by FCC. They seem to suggest set 25/3 as a minimum and don't say anything about maximum. Their goal is a bit different from what you are thinking, their goal is to make sure every single person in USA has access to reasonable speed. You want 1gbit internet, but if that comes at a cost of some people in rural America to not have internet then it doesn't fit their goal. Therefore statement like "if we only had one choice of 25/3, we'd take it" can be easily taken out of context. They are clearly suggesting minimum and not maximum.