Amartya Sen has written extensively about how to do just this, though he wouldn't call it utility either (it's one of the cornerstones of the capability approach). He formalizes it in terms of the real option sets available to an individual rather than "free will" though. The main difficulty is how to quantify and value different option sets. (You can't just look at the size of the sets, because different options are likely to be differentially valuable qua options, and you need to incorporate that somehow.)
Yesterday I heard an interesting story on the radio about US President Obama's pick to head the Office of Information and Regulatory Affairs, Cass Sunstein. I recommend checking out the story, but here are a few key excerpts.
At the risk of starting a discussion that will be wrecked by political wrestling, I'm always hopeful when I hear about governments applying what we learn from science to policy. Not to say that this always generates good policies, but it does generate the best policies we have reason to believe will be good (so long as you ignore the issue of actual politices that might get in the way).