I don't think the issue is necessarily that they're incapable, it's more that they don't have the necessary background intuition or knowledge. At least in the state i taught in, this is not surprising as elementary school teachers often dread math and fail their standardized teaching test math portion several times sometimes. It's the blind leading the blind.
I've also noticed it in reading, when they have teachers who aren't readers themselves trying to teach it to them.
Though I don't know of any studies about algebra in particular, kids show greater neuroplasticity in general than adults. So learning anything as an adult tends to be more difficult.
But I live with an American who reasonably fluent in Norwegian after 2 years of study in their 30s. It's certainly not impossible.
I have no doubt that math, like virtually everything, is more difficult for adults to pick up from scratch.
My conclusion is that some people simply can’t learn algebra. Be it genetic, environmental, lack of intellectual fortitude, lack of “intelligence”, or any combination thereof it is simply the case that some people can’t learn algebra.
Considering that a small percentage of careers require more than basic algebra/geometry/statistics, it's not hard to see that math has a "why should I learn this?" problem more than a "am I able to learn this?" problem.
However that feels really different from saying a not insignificant portion of the population, inherently cannot.
Here are some more thoughts to ponder:
Children are easier to brain wash than adults and teaching basic math involves a great deal of brain washing. To what extent is it the case that a person with no exposure to algebraic concepts growing up is at a disadvantage to learning algebra as an adult? There is a theory that if one doesn’t learn a language in childhood then it is impossible for them to learn one as an adult. Is something similar applicable to Mathematics?