- Make the modding tools very easy to use. There should be a tool for creating the mod, and a fast way to test the mod, ideally live creation if that's practical for your game.
- Make the distribution and installation of mods dead simple (think steamworks). People are more likely to make mods if they know they'll be used! A rating system will give recognition to modders and allow people to choose the best mods.
- Make the many aspects of the game modifiable. If users can add levels, enemies, weapons, etc. they're more likely to make a mod. If the apsectaspect of the game they want to change isn't modifiable, they won't make a mod.
And the most difficult task:
- Make a game that people love to play. People won't bother modifying a game they don't like.