The way I see it if the SEC really wants to ensure fair dealing for retail traders in eliminating PFOF, what it should do is reform the exchanges to have retail traders' orders routed directly to the exchanges bypassing the brokers. The brokers should be the custodians of traders' accounts and the lenders for margin trading but traders' orders need not pass through them. That would truly be "direct trading" where traders truly trade directly against each other on central exchanges, completely cutting out the middlemen. And at the same time, it should ban HFT so nobody front-runs anybody.
Of course that's in a perfect world. How it is going to be in the real world is yet to be seen.
You are thinking in the right direction, one goal should be to cut out middlemen by letting retail trade against itself. The other goal should be to increase competition among middlemen.
Routing directly to exchanges would help with the latter, but not with the former. Mostly this would just be a shift from PFOF wholesaler middlemen back to old fashioned HFT middlemen.
Sure you could try to "ban" HFT but what does that even mean really.. HFT is a natural consequence of technology and the market structure. Any ban would run into problems with their definition of what behavior is prohibited and there would be loopholes pretty much guaranteed. imo what you really need to do is design a market structure where (1) speed isn't naturally such a huge advantage and (2) there are lower barriers to entry so that there is more competition among the fast players.
Generally speaking, in order for a retail order(*) to have a decent chance of trading against another retail order on the other side, enough time needs to pass for that contra order to appear. This amount of time is an eternity by HFT standards. You really need something like an auction where the liquidity has a few seconds to form in order to meaningfully reduce the amount of intermediation.
Intermediation is not necessarily a bad thing because it allows the trades to happen more quickly. However in order to keep the intermediation costs down, competition is essential. An auction mechanism that is open to a large number of participants would accomplish this nicely.
Fragmentation is also a huge issue if you just route to exchanges. Which exchange should orders be sent to? A single auction mechanism solves this nicely.
I really think the SEC is on the right track with the suggestion of an auction mechanism. I just hope they don't unnecessarily limit who is providing liquidity in the auctions to just the same firms that are wholesalers now.
*When I say retail order, market order is implied. It is very difficult for humans to use limit orders without getting taxed by HFT unless you slow the whole market down by a factor of a million.