I don't know what the best regulator would be. The example of golden rice was a classic one. You've probably heard about that at various levels. It was developed with the idea of making a nutritionally enhanced rice. When they actually tried to roll it out in rice breeding programs, it was tied up in so many patents owned by so many different companies that it was impossible to release it. It took years of negotiation, and the companies finally had to agree, by and large under public pressure, to allow those varieties to be bred into rice stocks. Farmers could use it cost-free, as long as they weren't making something like more than $10,000 a year. It had to be kept out of commercial production, but it could go to small-hold farmers.
That was a creative solution. As for whether it's a model for future decisions of that sort, I don't know, but it's a different environment altogether when you come to small-hold farmers in other countries.