For years, this is how Verizon/AT&T/SBC/BellSouth/etc had structured telephone networks. And this is probably the same structure they want to extend to shared data networks aka the Internet.
If you were a competitive telco carrier who wanted to deliver a massive amount of phone calls to Verizon customers in a particular region, you couldn't just dump it off at the tandem (which you can think of like a telecom peering point), you had to extend your network to the end offices where the Verizon customers were aggregated.
The thought there being there's finite capacity between the end office and the tandem. And if you're going to use most of it, you should either pay for it or build your own facilities to alleviate congestion.
You're dealing with a traditional telecom company (Verizon) in its telecom mindset (build to me/mid-span meet, and keep a very tight watch on ratios/meet points via accounting, billing, and state regulation), vs. a traditional Internet company (Level 3) in its traditional peering mindset (build to the exchange, then build to me, and keep a loose observation on ratios/meet points with no regulation).
I hope I haven't gone too far off track.