Here are a bunch of things (including wind power) that kill more birds per year than solar:
you really have two choices: 1. punish the heaviest users; 2. punish everyone.
There is a third choice, 3. expand capability.
Find the towers that sometimes saturate. Then take some of the profits Verizon creates, and increase those towers' capacity, or just outright add new towers. Adding towers would improve coverage, boost signal strength, and in general cut power requirements both for the tower and the customer's phone.