What are you referring to? Fragmentation?
Yeah, Google should definitely apply harsh "fines" to manufacturers who are milking their customers with un-updated smartphones.
I would do something like this:
1 - I would forbid Google Play certification to any launching smartphone that isn't bundling the latest Android version, unless the latest version was launched less than 3 months ago;
2 - I would forbid Google Play certification to launching smartphones from a company that hasn't updated all their <2-years-old models to the latest Android version, unless the latest version was launched less than 3 months ago and/or there are hardware limitations for updating a <2-years-old model (i.e. not enough RAM, ROM or outdated CPU/GPU instruction set).
There. Android has some >80% marketshare. They should have the balls to do this and the platform would improve greatly. It would also force the manufacturers to put some thought into less models instead of launching new models every week with tiny differences to see which ones they will update and which ones they will alienate.
Sony has been quite fantastic in this aspect. If someone asks me which brand they should look into, I'd say Sony without a doubt. Apart from Samsung with the Galaxy S series, everyone else has been pretty much incompetent regarding platform fragmentation.