"We are faced with the grim reality that the government likely will not, and probably cannot, cover much of the hefty price tag associated with building out one or more broadband networks that can eventually serve all Americans," Powell said yesterday. "Thus, our greatest challenge in promoting broadband is deciding how best to stimulate enormous private sector investment." Consumer groups and independent Internet access providers argue that this policy will leave the country with a tiny number of broadband providers that would wield tremendous power over the availability of Internet service and content. Localities typically are served by only one cable company and one telephone carrier. The nation has only two major satellite providers, and they are seeking to merge.