I can imagine that adoption was hard to achieve gradually. I figure you'd need a bunch of universities to get together and all at once say to the publishers:

> The only way we'll pay you ever again is through {the protocol}, deal with it.

If people just sought out and participated in better incentive alignment under the expectation that things would be better if only everybody did so... Well then things would already be better and we wouldn't be dreaming these dreams in the first place.