The way I see it, Dish could offer a $12/month lifeline locals package by simply taking the $5.99 locals fee and the $6.00 minimum service fee and offering that. DirecTV could do something similar. The problem would be advertising such a deal as it wouldn't be profitable to do some kind of awareness campaign. I suppose they could just give out some club dish cards to existing customers to give to friends/family who don't subscribe to pay TV. The offer could be for a 301 receiver and a dish 500 with install.
The problem with these setups is that the financial beating that comes with it. If you add too many low package customers, then you are rated with a lower ARPU (Average Revenue Per Unit). This is an estimate of what the average customer is worth. The second is the SAC (Subscriber Acquisition Cost) would be the same as far as installation expenses go. At $12/month, it would take a long time to recoup that investment. Then there's the equipment, although that is considered leased equipment. Investors get scared off when your average customer is not worth much.