One possible answer is that, in order to truly solve this problem, the sport must do away with facemasks or helmets altogether.
Mike Ditka has long proposed removing the facemask, claiming that it has encouraged players to weaponize their heads for hits without fear of injury [0].
Researchers in the medical community have been echoing this as well, arguing that helmets do far more damage than they prevent [1].
More and more, the league, and the sport in general, look to treat the "symptoms" of this issue rather than addressing the root cause.
[0] http://bleacherreport.com/articles/495469-nfl-helmet-to-helm... [1] http://natajournals.org/doi/pdf/10.4085/1062-6050-51.1.06?co...