Just another opinion.
In the cities, where is the FCC going to find vacant FM channels that AM stations could use for a translator? Just today I read an opinion piece where it looks like the big multi-station chains are accused of breaking through the limit on number of stations per market by adding a digital HD operations (which almost no one will listen to) and then hanging a translator onto it which people WILL listen to. So the AM station in cities that could most benefit from getting a translator are not likely to have the cash, lawyer-power and engineering-power to acquire a translator.
And the brutal truth is, as the broadcaster associations, legislators and others look that situation over, who can actually deliver programming that the public would find useful, helpful and entertaining? The talent-rich big operators.... or the folks hanging onto their daytime only and signal challenged AM stations?
In rural America, there is probably some 'squeeze and wiggle' space and little small town rural operators could add a translator.... but these guys don't have the lobbying power to get a new set of rules that give them relief while leaving their city cousins threadbare. And again, if the rural operation is anywhere near a thriving metro area, we will be back where we have been for 30 years now: people wanting to serve the metro area will put on their casual clothes and overalls and show up in the rural communities in the umbrella around the metro, and pretend they are going to serve the small community interests, and once they get the grant, it will be metro-oriented all the way.
This is one challenge that even ol' King Solomon from the Hebrew Bible would have trouble solving.