"Inclination is the key, because whilst you suggest that low-cost launch providers have preferred inclinations, then so do the end-users - the space missions that need to refuel. Changing inclination is expensive in fuel (and hence also in time, hardware, weight, and mission complexity). It is avoided when possible.

So the FIRST step is to set-up a series of launch facilities with a common (low) inclination. Right now, many of the potential players can't access low-inclination launch bases. Until this is sorted out, the idea remains a dream (but EVERY idea starts as a dream. Some make it to reality...)"

Inclination is important, but if launching from 0 inclination [Sea Launch] one can go to 28 inclination for same delta-v as if you were launching from the 28 degree latitude- though from 0 it's the least to go to 0.

So, one advantage of US govt doing this before someone else does, is they could choose 28 inclination and thereby make 28 inclination the common destination.

A 28 inclination means the Europeans latitude 05 can reach it, Sea launch can reach it, and India Sriharikota Island Latitude 13.9 can reach it. And, obviously KSC.

Of course if China or Japan wants to make a gas station, then all the others could also reach it.
And Russia is setting shop at the European spaceport so if they launched from there it could also get to higher inclinations.

Of course, 0 inclination is the best and all countries should simply launch from the equator.

All they would need to do is to build some pipelaunchers.

:)