The incentives were never (and arguably still aren't) there. And there are some major companies building their own walled-gardens for 20+ years now...so, not an easy fight. Let alone a state or the federal government. These things take time.

Open protocols are basically a free stack for a credential issuer to empower their customers / end-users. It only takes 1state, trade association, social network, etc. Maybe I'm naive / hopelessly hopeful.