For a lot of these changes, you need a motivated and engaged enforcer/system-owner who will work through these challenges. It takes time and effort to change the culture of a group. I can't imagine someone wanting to change unless they either gain a strong motivation (highly unlikely given that they have been in the current condition for a while themselves) or they are given the right framework/setup by someone else (govt. in this case). So, this is a hard problem and one shouldn't get disheartened due to no progress so far.