Yeah. The rules need to change substantially at all levels. I can't see another way out, without just banning the sport outright. In soccer, they've already done it at the kid's level. My kids' teams don't allow heading the ball at all. That's such an obvious win. It changes soccer pretty substantially, but it's still a lot of fun, and much safer with that rule in place. Football has enough money that I'm sure someone can solve this by adjusting the rules towards safety without completely changing what makes the game fun.

That said, it may not be solvable. It's not just helmet-to-helmet collisions that are the problem. You often see players make a diving grab, and their head slams into the ground when they land. That's micro-concussion territory that may be unavoidable. But, my guess is it's an 80/20 rule. If you somehow eliminate player-to-helmet hits altogether, you'd probably end up in a good enough place.