(Please take the following without any hint of political bias.) A government, on the other hand, builds infrastructure that isn't intended to have a return to it that's valued in money. Instead, that infrastructure benefits society in other ways. Arguably, building a network that functions as a "dumb pipe" where others can provide services on top of it--akin to a road--would allow greater competition in the business of moving bits because competitors would be freed from each of them expending and needlessly duplicating the others' infrastructure costs.